WITHIN  t: 

YORK  Aj 
ITS  REOR. 


Ex  ICtbrtH 


SEYMOUR    DURST 


"^  '  'Tort  nu^iiw    ^im/ftr<Ufm,  oj^  Je  Mimhatan^ 


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OLD     YORK     LIBRARY    -    OLD     YORK     FOUNDATION 


AVE-RY  ARCIIITIXTIRAL  AND  FlNL  ARIS  LIBRARY 
(ill  I  oi  Si  VMoiK  F^  DiKsi  Oi  i)  York  Ijrrary 


Digitized  by  the  Internet  Archive 
in  2013 


http://archive.org/details/studyofcountygovOOnewy 


Study  of  County  Government 

WITHIN   THE    CITY  OF   NEW  YORK 

AND    A    PLAN     FOR    ITS 

REORGANIZATION 


PREPARED  FOR  THE 

CONSTITUTIONAL  CONVENTION,  1915 

BY  THE 

COMMISSIONER  OF  ACCOUNTS  AND 
THE   CITY   CHAMBERLAIN 

NEW  YORK  CITY 


HENRY   BRUERE 

CITY   CHAMBERLAIN 

LEONARD   M.  WALLSTEIN 

COMMISSIONER     OF     ACCOUNTS 


8G 150 -15-2000 


TABLE  OF  CONTENTS 


PAGE 

Letter  of  Transmittal vii 

Summary    1 

Translation  from  English  System 5 

The  Constitution  of  1777 6 

The  Constitution  of  1821 6 

The  Constitution  of  1846 7 

The  Present  Constitution 7 

Effect  of  Greater  New  York  Charter  of  1897 7 

Charter  Amendments 8 

Recent  Legislation  other  than  Charter  Amendments 9 

Form  of  County  Government  in  the  City  of  New  York  in  1915 10 

County  Clerk 10 

District  Attorney 10 

Register 10 

Commissioner  of  Records 11 

Commissioner  of  Jurors 12 

Public  Administrator 12 

Sheriff 13 

County  Courts  and  Court  of  General  Sessions 13 

Surrogate 14 

Recapitulation    14 

Cost  of  County  Government 15 

Effect  of  Mandatory  Legislation 16 

Inequalities  in  Salaries 19 

Increase  in  County  Expenses 20 

Inadequacy  of  Fees 22 

Sheriff's  Fees  and  Expenses 22 

Restoring  Records  and  Recording  Documents 25 

County  Jails  for  Civil  Prisoners 27 

Diversion  of  Fees  to  Private  Corporations 28 

Necessity  for  Reorganization 29 

Antiquity  of  county  institutions  no  reason  for  their  retention 30 

No  necessity  for  separation  of  county  and  municipal  functions 30 

Centralization  would  not  interfere  with  convenience  to  the  public 30 

Centralization  would  not  unduly  impair  local  autonomy 31 

Centralization  will  reduce  expenses 32 

Consolidation  and  Merger 32 

County  Clerk 33 

District  Attorney 35 

Register 36 

Commissioner  of  Records 36 

Commissioner  of  Jurors 38 


IV 


TABLE  OF  CONTENTS 

Consolidation  and  ^lerger —  page 

Public  Administrator   3S 

Sheriff 38 

County  Court  and  Court  of  General  Sessions 39 

Surrogate   39 

^lerger  with  Municipal  Government 40 

Combination  of  Offices  of  County  and  City  Clerk;  Clerk  of  Courts.  ...  40 

Abolition  of  Office  of  Commissioner  of  Records 40 

Abolition  of  Office  of  Public  Administrator 41 

Combination  of  Office  of  Sheriff  with  Departments  of  Police  and  Cor- 
rection and  City  Marshals 41 

Abolition  of  Counsel  for  County  Officials 41 

Constitutional  Amendment  Necessary 41 

Appendix — 

Table  1 — Cost  of  county  government,  New  York  county,  1914,  based 
upon  budget  allowances,  revenue  bonds  and  incidental  ex- 
penditures     •  • 45 

Table  2 — Cost  of  county  government,  Bronx  County,  1914,  based  upon 
budget  allowances,  revenue  bonds  and  incidental  expendi- 
tures         47 

Table  3 — Cost  of  county  government.  Kings  County,  1914,  based  upon 
budget  allowances,  revenue  bonds  and  incidental  expendi- 
tures         49 

Table  A — Cost  of  county  government.  Queens  County,  1914,  based  upon 
budget  allowances,  revenue  bonds  and  incidental  expendi- 
tures         51 

Table  5 — Cost  of  county  government,  Richmond  County,  1914,  based 
upon  budget  allowances,  revenue  bonds  and  incidental  ex- 
penditures         53 

Table  6 — Fees  collected  and  budget  and  revenue  bond  allowances  for 
each  fee-earning  county  office  from  1906  to  1914,  in- 
clusive         55 

Table  7 — Summary  of  fees  collected  by  sheriffs  of  New  York  County 
Jan.  1,  1906,  to  Dec.  31,  1914  (Inclusive),  and  disposition 
of  same    57 

Table  7a — Budget  appropriations  for  personal  service  in  county  jails. .     59 

Table  8 — Summary  showing  existing  conditions  and  the  proposed  re- 
organization of  the  various  county  offices  in  the  City  of 
New  York  61,  63 

Table  9 — County  Clerk — Existing  conditions  January  1,  1915,  in  the 
five  counties  in  New  York  City  and  proposed  reorganization 
showing  resulting  economies 65,  67 

Table  10 — District  Attorney — Existing  conditions  January  1,  1915,  in 
the  five  counties  in  New  York  City,  and  proposed  reorgani- 
zation showing  resulting  economies 69,  71 


V 


TABLE  OF  CONTENTS 
Appendix —  page 
Table  11 — Register — Existing  conditions  January  1,  1915,  in  the  three 
counties  (New  York,  Bronx  and  Kings)  and  proposed  re- 
organization showing  resulting  economies 73,  75 

Table  12 — Commissioner  of  Records — Existing  conditions  January  1, 
1915,  in  the  office  of  commissioner  of  records.  New  York 
County,  commissioner  of  records.  Kings  county  and  com- 
missioner of  records,  New  York  County  surrogates'  office, 
and  proposed  reorganization,  showing  resulting  economics.  .      77 

Table  13 — Commissioner  of  Jurors — Existing  conditions  January  1, 
1915,  in  the  five  counties  in  New  York  City  and  proposed 
reorganization,  showing  resulting  economies 79 

Table  14 — Public  Administrator — Existing  conditions  January  1,  1915, 
in  the  five  counties  in  New  York  City  and  proposed  reor- 
ganization,  showing   resulting   economies 81 

Table  15 — Sheriff — Existing  conditions  January  1,  1915,  in  the  five 
counties  in  New  York  City  and  proposed  reorganization, 
showing  resulting  economies   83,  85 

Table  16 — County  Courts — Existing  conditions  January  1,  1915,  in  the 
five  counties  in  New  York  City,  showing  economies  which 
would  result  from  a  consolidation  of  clerical  and  other  sub- 
ordinate positions  87 

Table  17 — Surrogate — Existing  conditions  January  1,  1915,  in  the  five 
counties  in  New  York  City  and  proposed  reorganization, 
showing  resulting  economies 89,  91 


n 


August  13,  1915. 


Hon.  John  Purrov  Mitciiel, 

Mayor: 


Sir — We  submit  herewith  a  report  on  a  study  of  county  government  within 
the  City  of  New  York.  This  report  was  undertaken  as  one  of  a  series  of  studies 
of  the  mandatory  provisions  of  law  which  impose  expenditures  on  the  city  govern- 
ment without  the  right  of  discretionary  action  by  the  local  authorities.  There 
has  been  lack  of  authoritative  information  regarding  the  organization  and  ex- 
penditures in  detail  of  county  government  and  consequently  the  puljlic  has  been 
without  the  facts  on  which  constructive  recommendations  regarding  county  ad- 
ministration could  be  formulated. 

There  have  already  been  published  descriptive  organization  charts  for  the 
five  counties  (which  will  be  found  in  the  survey  of  the  government  of  the  City 
of  New  York  prepared  by  the  Commissioner  of  Accounts  and  the  New  York 
Bureau  of  Municipal  Research  for  the  use  of  the  Constitutional  Convention) 
and  a  summary  of  mandatory  legislation,  sul)mitted  by  the  Commissioner  of  Ac- 
counts to  you  on  June  15,  1915. 

The  study  on  which  this  report  is  based  was  begun  wdthout  specific  change 
in  legislation  or  other  action  in  mind.  Recommendations  herein  made  are  based 
on  the  facts  which  the  report  contains.  We  believe  that  county  government  in  the 
City  of  New  York  presents  a  field  for  profitable  reorganization.  Such  reorgani- 
zation and  its  consequent  saving  is  now  impossible  for  lack  of  necessary  legislation 
and  because  of  constitutional  obstructions. 

The  results  of  the  present  study  are  presented  in  the  hope  that  they  may  be 
available  for  use  by  the  Constitutional  Convention  and  thereafter  l)y  the  Legis- 
lature and  by  city  oiTicials. 

In  the  preparation  of  the  report  helpful  criticisms  and  suggestions  have  been 
received  from  Mr.  H.  R.  Sands,  of  the  New  Y^ork  Bureau  of  Municipal  Research, 
who  for  several  years  has  been  making  an  intensive  study  of  county  government 
throughout  the  United  States. 

Respectfully   submitted, 

HENRY"   BRUERE, 

Chamberlain. 

LEONARD  M.  WALLSTEIN, 

Commissioner  of  Accounts. 


STUDY  OF  COUNTY   GOVERNMENT  WITHIN   THE   CITY 

OF  NEW  YORK  AND   A  PLAN  FOR 

ITS    REORGANIZATION 


SUMMARY. 

County  government  within  the  city  of  New  York  is  an  anachronism.  Inherited 
from  colonial  times,  it  persists  by  reason  of  public  apathy  and  private  political  in^^ 
terest.  County  goxernment  was  devised  before  the  existence  of  large  cities  and  is 
entirely  unsuited  to  their  needs.  It  is  still  imposed  on  the  city  of  New  York  despite 
the  fact  that  a  complete  scheme  of  municipal  government  has  long  made  county 
government  within  this  city  an  unnecessary  and  costly  appendage. 

There  are  forty  separate  county  departments  within  the  city  of  New  York. 
Twenty=seven  of  these  are  headed  by  independent  elective  county  officers.  There 
is  no  adequate  central  and  responsible  authority  to  exercise  supervision  or  enforce 
co=operation.  The  work  of  six  county  departments  is  duplicated  in  each  of  the  five 
counties,  so  that  thirty  departments  are  now  doing  the  work  which  six  should  do. 

The  cost  of  county  government  provided  in  the  tax  levy  of  1915  was  $7,704,= 
945.79.  This  means  that  on  every  $10,000  of  assessed  valuation  the  taxpayers  are 
compelled  to  pay  for  county  government  $19  in  Richmond  County,  $15  in  Bronx 
County,  $12  in  Kings  County,  $10  in  Queens  County  and  $7  in  New  York  County. 
An  effective  reorganization  of  county  government  would  result  in  an  annual  saving 
of  over  one  million  dollars  for  salaries  alone. 

County  government  in  the  city  of  New  York  has  been  the  favorite  field  of  parti= 
san  politics  and  special  legislation.  Year  after  year  county  positions  have  been 
multiplied  and  count\  salaries  increased,  culminating  in  the  creation  of  Bronx  County 
at  an  additional  annual  burden  of  $700,000.  In  fifteen  years  the  cost  of  county  gov- 
ernment has  increased  90  per  cent. 

With  few  minor  exceptions,  the  present  constitution  permits  no  essentially  dif= 
ferent  form  of  county  organization  and  government  from  that  in  existence  at  the 
time  of  the  adoption  of  the  first  constitution  of  the  State  in  1777.  Successive  revi= 
sions  of  the  constitution  have  left  county  government  substantially  as  the  first  con= 
stitution  found  it,  a  translation  of  the  mediaeval  English  system. 

Such  progress  as  has  been  made  in  countv  government  within  the  city  of  New 
York  has  been  forced  upon  the  legislature  by  the  development  of  a  huge  urban  com= 
munity.  The  unfitness  of  a  form  of  government  adapted  to  rural  districts  and 
inherited  from  the  eleventh  century  was  recognized  in  the  merger  of  the  govern= 
ments  of  the  former  county  and  citv  of  New  York  in  1874,  in  the  merger  of  the  Brook= 


lyn  city  and  Kings  county  governments  in  1895  and  in  other  more  specific  combina- 
tions of  city  and  county  offices.  Yet  in  the  formation  of  the  greater  city  of  New  York 
such  assimilation  of  city  and  county  could  not  be  effected  because  of  constitutional 
inhibition. 


Twenty-three  county  departments  collect  fees  for  the  services  they  render,  but 
the  amounts  of  the  fees  for  the  same  service  often  vary  from  county  to  county  under 
statutory  schedules  which  have  not  been  thoroughly  revised  for  many  years  and 
which  usually  provide  for  entirely  inadequate  fees. 

The  law  provides  that  three  county  officers  shall  retain  as  their  own  all  the 
fees  they  collect,  and  that  one  shall  keep  half  of  his  collections.  In  addition,  three 
of  those  four  officials  receive  salaries  for  themselves,  and  two  are  further  provided 
by  county  appropriation  with  salaries  for  subordinates  and  office  expenses.  Under 
this  system  the  sheriff  of  New  York  County  realizes,  personally,  $24,000  salary  and 
over  $90,000  in  fees  during  his  two  years'  incumbency. 

With  the  possible  exception  of  the  departments,  the  heads  of  which  retain  all 
their  collections,  none  of  the  fee=collecting  offices  is  self=supporting.  The  deficits 
have  steadily  increased  and  in  1914  ranged  from  $1,017  for  the  public  administrator 
of  Queens  County  to  $205,033  for  the  register  of  New  York  County. 

The  legislature  has  nevertheless  ignored  requests  to  permit  the  registers'  offices 
to  support  themselves  and  possibly  to  yield  a  surplus  by  earning  large  sums  which 
the  title  companies,  private  corporations,  obtain  by  the  use  of  the  registers'  records. 

If  all  the  fee=collecting  county  offices  were  made  self=supporting,  as  they  should 
be,  upon  the  accepted  theory  that  the  fee  should  cover  the  cost  of  the  service  rend- 
ered, the  taxpayers  would  be  saved  more  than  $2,000,000  annually. 

The  constitution  leaves  the  mayor  without  veto  power  over  bills  affecting 
county  offices.  As  a  result,  the  greater  part  of  legislation  financially  burdensome  to 
the  city  has  related  to  those  offices. 

Of  the  forty  county  departments,  mandatory  legislation  deprives  the  budget 
makers  of  all  control  over  the  payroll  cost  of  ten  departments,  and  leaves  them 
powerless  as  to  seventy=five  per  cent,  of  the  salary  cost  in  ten  other  departments, 
fifty  per  cent,  in  nine  others,  and  in  addition,  imposes  lump  sum  appropriations  of 
one  hundred  thousand  dollars  each  for  two  other  departments. 

Mandatory  legislation  has  resulted  in  gross  ine(|ualities  in  compensation  paid 
in  the  several  counties  for  similar  service  and  has  meddled  with  such  administrative 
matters  as  fixing  the  salaries  of  office  bo>  s,  cooks,  scrub-women  and  watchmen. 

A  striking  example  of  the  wastefulness  of  countv  government,  resulting  from 
its  decentralization   and    from   its   exploitation    for   partisan   purposes,   is  afforded    by 


the  enormous  cost  of  preserving  and  restoring  county  records.  Tn  seventeen  years 
over  four  and  a  quarter  millions  have  been  expended  for  that  purpose  by  five  separate 
county  departments,  three  of  which  have  been  chiefly  useful  as  affording  berths  for 
party  henchmen. 

Again,  the  average  daily  cost  for  guardiag  each  prisoner  in  the  county  jails  is 
$3.21  in  Kings  County,  $3.49  in  New  York  County,  and  $5.20  in  Queens,  while  the 
per  capita  cost  of  guarding  prisoners  under  the  Department  of  Correction  ranges 
from  7  cents  to  37  cents  per  day. 

Altogether  the  antique  and  wasteful  system  of  county  government  within  the 
city  of  New  York  should  be  thoroughly  reorganized.  The  constitution  should  be  so 
amended  as  to  permit  the  merger  of  the  county  governments  with  the  city  govern- 
ment and  where  that  is  not  practicable,  the  consolidation  of  the  several  county 
establishments. 

Such  reorganization  would  be  largely  the  continuation  of  a  process  already 
initiated,  since  many  functions  performed  "  up  state  "  by  branches  of  the  county 
governments  have  long  in  this  city  been  performed  by  municipal  officers.  Every 
reason  that  sustains  such  earlier  combination  of  county  with  city  government  sustains 
the  continuation  of  the  process. 

Arguments  in  favor  of  the  retention  of  the  present  system  can  readily  be  shown 
to  be  untenable. 

Sach  reorganization  would  not,  with  present  transit  provisions,  inconvenience  the 
public,  nor  would  local  autonomy  be  unduly  impaired.  Branch  offices  could  be  main- 
tained where  necessary. 

Such  reorganization  of  the  forty  county  departments  would  co-ordinate  service, 
would  centralize  authority  and  responsibility  and  even  on  conservative  liaes  would 
effect  a  saving  in  salaries  alone  of  over  a  million  dollars  a  year,  or  thirty  per  cent,  of 
the  present  salary  cost  of  those  departments,  and  nineteen  per  cent,  of  the  total 
salary  cost  of  county  government  as  provided  in  the  1915  budget. 

No  particular  form  is  urged  as  to  the  details  of  such  a  plan  of  reorganization, 
but  as  an  indication  of  what  might  be  effected,  the  following  plan  is  submitted: 


/.     County  Clerk: 

Unite  those  forces  of  each  office  which  serve  as  clerks  of  the  supreme  court  into 
a  single  office  and  have  the  appellate  division  appoint  the  head  of  the  new  office  as 
"  the  clerk  of  courts."  Unite  the  remainder  of  each  office  (except  the  register  division 
in  Queens  and  Richmond)  with  the  city  clerk's  office  and  have  the  mayor  appoint  the 
head  of  the  new  office  as  "  the  city  and  county  clerk,"  replacing  the  present  counsel 
to  the  county  clerks  by  the  municipal  law  department. 


2.  District  Attorney: 

Replace  the  existing  five  offices  by  one  for  the  whole  city  and  elect  the  head 
of  it.  There  would  then  be  a  city  department  for  the  prosecution  of  criminal  cases 
comparable  with  the  present  law  department  on  the  civil  side. 

3.  Register : 

Replace  by  a  single  department  the  register's  office  in  each  of  the  three  counties 
and  the  register  division  of  the  county  clerk's  office  in  the  other  two  counties,  and 
have  the  mayor  appoint  the  head  of  the  combined  office,  necessary  legal  work  for 
the  new  department  to  be  done  by  the  city  law  department. 

4.  Commissioner  of  Records : 

Abolish  these  offices  and  have  the  undone  portion  of  their  work  performed  by  a 
small  temporary  force  in  the  offices  of  the  register,  the  '*  city  and  county  clerk  " 
and  the  surrogate. 

5.  Commissioner  of  Jurors : 

Replace  the  five  offices  by  one  headed  by  an  appointee  of  the  appellate  division. 

6.  Public  Administrator : 

Abolish  these  offices  and  transfer  their  functions  to  the  city  chamberlain. 

7.  Sheriff: 

Transfer  his  functions  in  all  counties  as  peace  officer  to  the  police  department, 
as  jailer  to  the  department  of  correction  and  as  to  his  remaining  duty  to  execute 
civil  court  mandates,  unite  all  the  offices  into  one,  have  it  absorb  the  city  marshals 
and  let  it  be  headed  by  an  appointee  of  the  mayor,  necessary  legal  work  to  be  per- 
formed by  the  city  law  department. 

8.  County  Courts  • 

These  should  be  consolidated  with  the  supreme  court,  or  some  other  kind  of 
combination  should  be  effected,  as  for  example,  with  the  court  of  general  sessions 
and  the  city  court. 

9.  Surrogates'  Courts; 

The  five  surrogates'  courts  should  be  consolidated  into  one  court. 

Such  a  reorganization  would  reduce  the  present  forty  county  departments  to 
eight,  two  of  which  would  be  merged  with  city  offices,  and  would  result  in  simplified 
elections,  better  official  service  and  economical  administration. 


STUDY  OF  COUNTY   GOVERNMENT  WITHIN   THE   CITY 

OF    NEW   YORK    AND   A    PLAN     FOR 

ITS    REORGANIZATION 

Local  government  in  the  city  of  New  York  comprises,  first,  the  city  govern- 
ment proper,  including  five  borough  establishments,  which  are  made  integral 
parts  of  the  city  government  by  representation  in  the  Board  of  Estimate  and 
Apportionment  and  in  the  Board  of  Aldermen.  In  addition,  side  by  side  with  the 
city  and  borough  governments,  there  are  the  five  detached  county  governments, 
one  for  each  of  the  counties  which  lie  within  the  geographical  boundaries  of  the 
city.  Each  of  these  county  governments  is  composed  of  numerous  branches,  all 
co-ordinate  and  none  bearing  any  relation  of  control  over  or  responsibility  to 
any  other. 

The  combined  cost  of  these  county  governments  assessed  upon  the  taxpayers 
and  reflected  in  the  tax  levy  for  the  year  1915  was  $7,704,945.79,  consisting  of 
$7,033,716.82  (the  budget  appropriation  for  the  year)  and  $671,288.97  (county 
charges  and  expenses  paid  during  1914  from  proceeds  of  special  revenue  bonds). 
The  tax  rate  exclusively  for  city  purposes  in  1915  was  $1.78617  per  $100  of 
assessed  valuation.  The  total  tax  rate  for  city  and  county  purposes^  was  $1.85964 
in  New  York  County,  1.94  in  Bronx  County,  1.90402  in  Kings  County,  1.88023 
in  Queens  County,  and  1.97763  in  Richmond  County.  In  other  words,  in  addition 
to  the  tax  rate  for  city  purposes,  taxpayers  were  compelled,  by  reason  of  county 
expenses^  to  pay  7  points  in  New  York  County,  15  points  in  Bronx  County,  12 
points  in  Kings  County,  10  points  in  Queens  County,  and  19  points  in  Richmond 
County. 

What  is  the  purpose  of  these  county  governments  ?  How  are  they  organized  ? 
Are  all  of  them  necessary?  Are  all  the  branches  of  all  of  them  necessary?  In 
short,  do  the  county  governments  present  a  field  for  profitable  retrenchment? 

TRANSLATION  FROM  ENGLISH  SYSTEM. 

The  present  form  of  county  organization  in  New  York  City  can  be  traced 
directly  to  the  days  of  William  the  Conqueror  and  few  changes  have  been  made 
to  adapt  it  to  modern  urban  development.  The  county  or  shire  existed  in 
England  before  the  days  of  King  Alfred.^  The  shire  was  then  a  self-governing 
community,  consisting  of  an  independent  tribe.  The  kingdom  of  England  was 
not  originally  divided  into  shires  for  administrative  convenience ;  it  was  formed 
by  uniting  the  shires. 

After  the  Norman  Conquest,  shires  came  to  be  known  as  counties  and  in  each 
there  was  a  county  court  held  by  circuit  judges,  appointed  by  the  king;  a  sheriff, 

^Does  not  include  Borough  Special  Assessments  which  when  added  made  the  tax  rate 
in  New  York  County.  $1.87,  in  Bronx  County  1.94,  in  Kings  County  1.92,  in  Queens  County 
1.95  and  in  Richmond  County  2.24. 

^Includes  expenses  of  Supreme  Court,  National  Guard  and  Naval  Militia.  Charitable 
Institutions,  Law  Libraries^  and  General  and  Miscellaneous  Countv'  expenses  such  as  Fees 
and  Expenses  of  Jurors.  Disbursements  and  Fees,  Stenographers'  Fees,  Witnesses  Fees  and 
Board  of  City  Record.  Extra  Clerks  to  Board  of  County  Canvassers,  Rent  and  Contingencies 
in  addition  to  the  aporopriations  for  the  fortv  county  departments  hereafter  described. 

'Fiske's  "  Civil  Government,"  pages  4^-50. 


appointed  by  the  king,  whose  duty  it  was  to  collect  taxes  and  enforce  the  judg- 
ments of  the  courts  and  keep  the  peace;  an  elective  coroner,  who  held  inquests 
in  cases  of  sudden  death;  and  six  or  more  justices  of  the  peace,  appointed  by 
the  king,  who  held  courts  of  quarter  sessions  four  times  a  year,  gradually  sup- 
planting the  county  courts  in  jurisdiction. ^ 

This  county  system  was  brought  to  America  by  the  early  English  settlers, 
and  in  1683  the  Colony  of  New  York  was  divided  into  counties  by  act  of  the 
colonial  legislature.  Four  of  these  counties  were  New  York,  Kings,  Queens  and 
Richmond.2  In  each  county  the  colonial  governor  appointed  a  sheriff,  one  or 
more  coroners  and  several  justices  of  the  peace.  Before  the  Revolution  there 
had  also  been  created  the  offices  of  county  judge,  county  treasurer,  county  clerk,^ 
loan  officer,^  boards  of  supervisors,  consisting  of  a  freeholder  elected  from  each 
town  to  supervise,  levy  and  assess  taxes  for  county  purposes,^  and  courts  of  gen- 
eral or  quarter  sessions.^ 

THE   CONSTITUTION   OF   1777. 

The  first  constitution  of  the  State  w^as  adopted  in  1777.  It  continued  in  force 
the  acts  of  the  colonial  legislature  and  left  the  counties  as  it  found  them,  except 
that  all  county  officers  were  to  be  appointed  by  the  governor  of  the  State  and  the 
council  and  that  the  offices  of  coroner,  sheriff,  county  judge,  justice  of  the  peace, 
county  treasurer,  loan  officer,  county  supervisor  and  clerk  to  the  board  of  super- 
visors were  either  expressly  continued  or  otherwise  mentioned,  thereby  making 
them  constitutional  officers  whose  places  could  not  be  abolished  by  the  legislature. 

THE  CONSTITUTION  OF  1821. 

In  the  constitution  of  1821  no  mention  was  made  of  the  offices  of  loan  officer, 
county  treasurer  or  clerk  of  the  board  of  supervisors,  thereby  making  them  no 
longer  constitutional  officers  and  empowering  the  legislature  to  abolish  them. 
In  addition  to  repeating  the  other  county  officers  named  in  the  first  constitution, 
the  offices  of  county  clerk,  district  attorney"^  and  the  register  of  New  York  City 
and  County^  and  the  courts  of  general  sessions  and  oyer  and  terminer  for  the 
city  and  county  of  New  York  were  either  expressly  continued  or  otherwise 
mentioned,  thereby  giving  them  constitutional  sanction.  Sheriffs,  coroners, 
county  clerks  and  the  register  of  the  city  and  county  of  New  York  were  made 
elective  officers.  District  attorneys  were  to  be  appointed  by  the  county  court.  By 
amendment  to  the  constitution  in  1826  justices  of  the  peace  were  made  elective 
by  the  people  of  each  town. 

'Fiske's  "Civil  Government,"  pages  51-53. 

^Kings  and  Queens  Counties  then  included  all  the  territory  now  constituting  Nassau, 
Queens  and  Kings  Counties.  New  York  County  did  not  extend  north  of  the  Harlem 
River. 

•Mentioned  as  existant  in  L.  1777,  C.  7,  but  not  created  in  that  year,  hence  office  existed 
before  Constitution  of  1777. 

*The  function  of  loan  officer  was  to  lend  on  mortgage  to  citizens  the  quota  of  govern- 
ment money  allotted  to  each  county  for  that  purpose.  L.  1786  (1  Greenleaf.  242-244). 
The  office  was  ultimately  abolished  by  L.  1850,  C.  532,  but  "  Commissioners  for  loaning 
certain   moneys   of  the  U.   S."   succeeded  them.     See  L.   1898  C.   588. 

"Lincoln's  "Constitutional  History  of  New  York."  pages  2)7  to  42;  Fairlie's  "Legal 
Government  in  Counties,  Towns  and  X'illages."  page  28. 

"Mentioned  as  existing  in  1774  (see  L.  1778,  C.  12). 

'Created  as  an  appointive  officer  in  New  York  County  L.  1815,  C.  87  in  Kings,  Queens 
and  Richmond  Counties  L.  1818,  C.  283;  made  salaried  officer  in  New  York  County  L.  1821^ 
C.  97;  in  Kings  L.  1846.  C.  31;  Queens  and  Richmond.  L.  1852  C.  304. 

'Created  as  an  appointive  officer  L.  1813,  C.  86,  Sec.  157. 


THE   CONSTITUTION   OF    1846. 

The  constitution  of  1846  required  the  election  of  a  county  judge  in  every 
county  except  New  York,  and  required  him  to  perform  the  duties  of  surrogate  ex- 
cept in  counties  of  over  40,000  population,  where  the  legislature  was  empowered 
to  provide  for  a  separate  surrogate.^  It  required  each  county  clerk  to  act  as 
clerk  of  the  Supreme  Court  and  empowered  the  legislature  to  abolish  local  courts 
in  the  city  of  New  York.-  District  attorneys  were  made  elective  officers.  .Ml 
former  constitutional  officers  were  continued  but  the  legislature  was  empowered  to 
devolve  the  powers  of  the  board  of  supervisors  upon  the  common  council  in 
cities  whose  boundaries  were  the  same  as  those  of  a  county. ^ 

THE  PRESENT  CONSTITUTION. 

By  the  present  constitution,  adopted  in  1894,  the  register  of  Kings  County* 
was  added  to  the  list  of  constitutional  officers  which  now  include  sheriff's,^ 
county  clerks,^  district  attorneys,  registers,  surrogates  and  county  judges.  No 
mention  was  made  of  coroners  thus  empowering  the  legislature  to  abolish  the 
office.  Courts  of  sessions  were  abolished  in  all  counties  except  New  York, 
where  the  court  of  general  sessions  by  inference  became  again  a  constitutional 
court.  The  superior  court  and  the  court  of  common  pleas  of  the  city  and 
county  of  New  York  were  abolished  and  their  jurisdiction  vested  in  the 
supreme   court.''^ 

EFFECT  OF  GREATER  NEW  YORK  CHARTER  OF  1897. 

The  Greater  New  York  Charter  enacted  in  1897  consolidated  various  mu- 
nicipalities into  the  present  city  of  New  York.  It  left  the  county  establishments 
of  New  York,  Kings,  Queens  and  Richmond  as  it  found  them  except  that  (1) 
it  abolished  the  office  of  county  treasurer  for  the  County  of  Richmond  and  de- 
volved his  powers  upon  the  comptroller  of  the  city;  (2)  it  made  the  public  admin- 
istrator^  of  the  former  city  of  New  York  public  administrator  of  the  County 
of  New  York;  (3)  it  substituted  borough  coroners  for  county  coroners;  (4)  it 
conferred  upon  the  municipal  assembly  or  administrative  city  officials  such  powers 
of  local  legislation  and  administration  in  the  counties  of  New  York,  Kings  and 
Richmond  as  were  not  then  vested  in  the  board  of  supervisors  or  in  other  con- 
stitutional county  officers;  and  (5)  it  empowered  the  municipal  assembly  and 
board  of  estimate  and  apportionment  to  fix  county  salaries  except  where  fixed 
by  statute  or  where  the  power  of  fixation  had  been  expressly  conferred  by  law 

'L.  1847,  C.  276  empowered  supervisors  in  counties  having  a  population  over  40.000 
(except  New  York)  to  provide  for  election  of  a  separate  salaried  surrogate.  L.  1847, 
C.  432  and  488  created  an  elective  salaried  surrogate  in  N.  Y.  County.  Previously  L.  1787. 
C.  38  had  empowered  the  governor  to  appoint  a  surrogate  in  every  county. 

^Except  Superior  Court  and  Court  of  Common  Pleas.  Constitutional  Amendment  1869. 

Power  of  board  of  supervisors  for  N.  Y.  County  was  conferred  on  Board  of  Aldermen 
by  L.  1874.  C.  304. 

^Created  as  an  elective  officer  L.  1852,  C.  82. 

'Sheriff  made  salaried  office  in  Kings,  L.  1901,  C.  705;  in  Queens  L.  1909.  C.  502. 
Sheriff  of  N.  Y.  granted  a  salary  (plus  half  of  his  fees)  by  L.  1890,  C.  523.  Sheriff  of 
Richmond  was  granted  a  salary  (plus  his  fees)  by  L.  1896.  C.  392. 

^County  Clerk  made  salaried  office  in  N.  Y.  Countv  L.  1884,  C.  299;  in  Richmond  L. 
1880.  C.  419;  in  Queens  L.  1912,  C.  540;  in  Kings  L.  1901,  C.  704 

Preceding  the  constitution  of  1894  the  legislature  had  created  a  commissioner  of 
jurors  (L.  1858,  C.  322)   and  a  public  administrator   (L.  1871,  C.  335)    for  Kings  County. 

'Created  by  L.  1815,  C.  157. 


upon  other  officials  and  provided  that  all  county  salaries  and  other  expenses  for 
the  counties  of  New  York,  Kings  and  Richmond  should  be  audited  by  the 
board  of  estimate  and  apportionment  and  paid  by  the  city  of  New  York,  but 
that  such  expenses  for  each  such  county  should  be  collected  by  levy  upon  the 
taxable  property  of  that  county. ^ 

CHARTER  AMENDMENTS. 

The  Greater  New  York  Charter  was  revised  in  1901  and  the  powers  formerly 
exercised  by  the  board  of  supervisors  in  any  of  the  counties  within  the  city  of  New 
York,  not  already  conferred  upon  other  city  officers,  were  devolved  upon  the 
board  of  aldermen.-  The  office  of  county  treasurer  in  Kings  and  Queens  coun- 
ties was  abolished,  his  functions  being  transferred  to  the  comptroller.  In  1903 
these  powers  were  in  turn  devolved  upon  the  chamberlain,  at  the  same  time 
making  a  similar  transfer  of  the  powers  of  the  former  county  treasurer  of  Rich- 
mond county,  which  had  been  devolved  upon  the  comptroller  by  the  original 
charter  of  1897. 

By  chapter  588  of  the  laws  of  1898,  the  new  county  of  Nassau  was  created 
out  of  the  towns  of  Oyster  Bay,  North  Hempstead  and  Hempstead,  thus  changing 
the  boundaries  of  the  county  of  Queens  so  that  it  lay  entirely  within  New  York 
City.  The  revision  of  1901  accordingly  amended  sections  902  and  1583  by  adding 
Queens  County  to  the  list  of  counties  whose  expenses  must  be  provided  for  by  the 
city,  and  repealed  sections  1592  and  1593,  which  authorized  the  state  comptroller 
to  apportion  that  part  of  the  annual  expenses  of  Queens  county  which  should  be 
borne  by  so  much  of  the  county  as  was  situated  in  New  York  City. 

In   1906   (Section-  149-a)   county  as  well  as  city  officials  were  required  to 

'See  sections  1585,  1587,  1570,  1586,  1583.  902,  56  and  233.  Not  all  of  the  county  of 
Queens  was  included  in  the  new  city  but  only  Long  Island  City,  the  towns  of  Newtown, 
Flushing  and  Jamaica  and  part  of  the  Town  of  Hempstead  (section  1.)  The  comptroller 
of  the  State  was  authorized  to  determine  annually  the  proportion  of  the  expenses  of 
Queens  county  which  should  be  borne  by  the  portion  situated  within  Greater  New  York, 
and  the  municipal  assembly  was  directed  to  collect  such  sum  by  levy  upon  the  taxable 
property  of  that  portion  of  the  county.  (Sections  1592,  1593  and  903.)  The  state 
comptroller  was  directed  to  determine  annually  the  proportion  of  the  state  tax  to  be 
paid  by  the  counties  of  New  York,  Kings  and  Richmond  and  by  that  portion  of  Queens 
County  situated  in  Greater  New  York,  such  total  amount  of  state  taxes  to  be  levied  upon 
and  collected  from  the  entire  property  within  the  territorial  limits  of  Greater  New  York 
(Section  1594-5).  The  state  comptroller  was  directed  to  pay  over  to  the  city  chamberlain 
annually  all  school  moneys  allotted  to  the  counties  of  New  York.  Kings  and  Rkhmond  and 
to  apportion  the  school  moneys  allotted  to  the  county  of  Queens  (sections  1596-7).  The 
cit>'  of  New  York  was  required  to  assume  a  proportionate  share  of  the  debt  of  the  county 
of  Queens  (section  1588).  The  new  city  assumed  all  debts  and  other  liabilities  of  the 
counties  within  its  territory  and  these  counties  were  prohibited  from  creating  any  debt 
binding  on  property  within  the  new  city  and  from  levying  any  tax  or  assessment  upon 
such  property.  (Sections  4.  5,  7.)  All  public  property  owned  by  the  counties  of  New 
York,  Kings  and  Richmond  was  transferred  to  the  new  city  as  was  a  portion  of  that 
belonging  to  the  county  of  Queens  (Sections  8,  1536-7).  Commissioners  of  Accounts 
were  given  power  to  examine  the  accounts  and  methods  of  county  offices  (Section  119). 
Powers  of  superintendent  and  overseers  of  the  poor  of  the  county  of  Richmond  were 
transferred  to  the  commissioner  of  public  charities  for  the  borough  of  Richmond.  (Sec- 
tions 662-664.)  All  powers  of  taxation  and  assessment  other  than  for  street  improvement 
formerly  possessed  by  county  offices  were  devolved  upon  the  board  of  taxes  and  assess- 
ments of  the  new  city  (Section  886),  Powers  of  school  trustees  for  school  districts  of 
the  county  of  Richmond  and  of  a  portion  of  the  county  of  Queens  were  conferred  upon 
the  Board  of  Education  (Section  1058).  Powers  of  justices  of  the  peace  were  devolved 
upon  the  courts  of  special  sessions   (Section  1406.  subdivision  4.  and  section  1414). 

'By  constitutional  amendment  in  1899  the  legislature  was  empowered  to  confer  the 
powers  of  county  boards  of  supervisors  upon  the  Board  of  Aldermen  in  any  city  including 
or^c  or  more  entire  counties. 


report  to  the  cumptroiler  such  statistical  informatiun  as  he  might  direct  and  to 
maintain  statistical  records  in  the  form  prescribed  by  the  Finance  Department. 

The  abolition  of  the  coroner's  office  in  1915  (to  take  effect  January  1,  1918; 
marks  the  culmination  of  a  struggle  which  has  lasted  over  twenty  years  to  rid  the 
city  of  this  outgrown  relic  of  early  English  county  government. 

RECENT   LEGISLATION   OTHER   THAN    CHARTER   AMENDMENTS. 

In  1897  (C.  526),  the  office  of  commissioner  of  records  was  established 
by  the  legislature  for  Kings  County,  and  in  1906  (C.  661)  a  similar  office  was 
created  for  New  York  county.  In  1911  (C.  534)  a  commissioner  of  records  for 
the  surrogates'  court,  New  York  County,  was  provided  for. 

In  1901  (C.  704-705-706),  the  off'ices  of  sheriff',  county  clerk  and  register 
of  Kings  County  were  placed  upon  a  salary  basis  and  in  1912  (C.  540)  the  county 
clerk  of  Queens  County  was  also  granted  a  salary  in  lieu  of  fees.  A  salary 
was  provided  for  the  public  administrator  in  New  York  County  in  1898  (C.  230, 
Sec.  31)  and  for  the  public  administrator  in  Kings  County  in  1911  (C.  774). 
A  salaried  public  administrator  was  provided  for  Queens  County  in  1900  (C. 
501),  and  in  1899  (C.  486),  the  office  of  public  administrator  for  Richmond 
County  was  created,  which  is  still  a  fee  office. 

Commissioners  of  jurors  were  provided  for  in  Queens  and  Richmond  in 
1899  (C.  441),  and  in  New  York  County  in  1901  (C.  602). i 

In  1907  (C.  412),  the  court  of  general  sessions  for  the  city  and  county  of 
New  York  was  reorganized  and  the  election  of  seven  judges  was  provided  for. 
Previously,  under  chapter  259  of  the  laws  of  1875,  the  court  of  general  sessions 
had  been  held  by  the  recorder  and  the  city  judge,  both  of  which  positions  were 
abolished  by  the  1907  act. 

In  1909  by  Section  430  of  the  consolidated  election  law  the  board  of 
county  canvassers  for  each  county  within  the  city  of  New  Yor]>:  was  made  to 
consist  of  the  aldermen  elected  from  that  county.  This  function  had  formerly 
been  performed  by  the  supervisors  and  there  had  been  some  doubt  as  to  whether 
the  function  should  be  performed  by  the  entire  board  of  aldermen  or  only  by  those 
elected  from  each  county. 

In  1912  the  borough  of  The  Bronx  was  constituted  a  new  county.  The  new 
county  government  commenced  operation  January  1,  1914.  Bronx  county  has  a 
full  set  of  county  officers  requiring  a  budget  appropriation  for  1915  of  $699,- 
654.46.  Of  this  sum  $432,940.68  was  mandatory  upon  the  budget  makers  under 
legislation  which  left  them  without  discretion  to  reduce  that  sum  by  one  dollar. 
Although  the  creation  of  these  new  county  officers  necessarily  reduced  the  work 
of  county  officials  in  New  York  County,  no  commensurate  reduction  in  the  ex- 
pense of  operating  New  York  County  has  resulted.  For  1913  the  budget  allow- 
ance for  the  old  county  of  New  York  was  $3,883,271.67.  For  1914  the  allowance 
for  the  new  county  of  New  York,  reduced  in  size,  was  $3,906,164.34,  an  increase 
of  $23,893.27,  where  a  decrease  might  have  been  expected.  For  1915,  New  York 
County's  allowance  was  $3,815,566.41.  Of  this  sum  $2,547,562.04  was  included 
by  the  budget  makers  under  the  compulsion  of  mandatory  legislation.  The  cre- 
ation of  Bronx  County  placed  an  additional  annual  burden  of  nearly  $700,000 
upon  taxpayers. 


^Laws    1896,    chapter   378,    provided    for   a    "  special    commissioner   of    jurors "    for   all 
counties  having  a  population  of  more  than  50,000  inhabitants. 


10 
FORM   OF  COUNTY  GOVERNMENT   IN  THE  CITY  OF  NEW   YORK   IN    1915 

As  a  result  of  the  constitutional  and  other  legal  provisions  reviewed  above, 
there  are  now  five  counties  within  the  City  of  New  York,  each  having  a  county 
clerk,  a  district  attorney,  a  commissioner  of  jurors,  a  public  administrator,  a  sherifif 
and  one  or  more  surrogates.  In  addition  there  is  a  register  in  the  counties  of 
New  York,  Kings  and  Bronx,  a  commissioner  of  records  in  New  York  and  Kings 
counties,  and  a  commissioner  of  records  for  the  surrogates'  court  in  New  York 
County.  There  is  a  county  court  in  each  county  except  New  York,  where  its  place 
is  taken  by  the  court  of  general  sessions.^  In  Richmond  the  county  court  and 
surrogate's  court  are  combined. 


1.  County  Clerk: 

The  county  clerk  has  charge  of  the  filing  and  preservation  of  all  county 
records  (except  that  in  New  York,  Kings  and  Bronx  counties  deeds,  mortgages, 
leases  and  conditional  sales  of  personal  property  are  recorded  by  the  register). 
He  is  the  keeper  of  the  county  seal,  issues  certificates  of  appointment  to  notaries 
public,  registers,  physicians  and  nurses,  files  certificates  of  incorporation,  records 
marriage  licenses  and  is  empowered  to  administer  oaths  and  take  affidavits.  He 
is  also  clerk  of  the  county  court  and  supreme  court  sitting  in  his  countv  (except 
in  New  York  County,  where  there  is  no  county  court).  He  dockets  and  indexes 
judgments,  mechanics'  liens,  lis  pendens  and  assignments  and  files  papers  in  law 
and  equity  actions,  taxes  costs,  prepares  judgment  rolls,  issues  executions  and  per- 
forms the  clerical  work  of  naturalizing  foreigners.  At  the  request  of  any  indi- 
vidual and  upon  receipt  of  the  statutory  fee^  the  county  clerk  searches  the  docu- 
ments in  his  custody  and  prepares  transcripts.  The  county  clerk  is  elected  for 
four  years  in  New  York,  Kings  and  Bronx  Counties,  and  for  three  years  in 
Queens  and  Richmond  Counties.  All  fees  collected  by  him  are  turned  over  to 
the  city  chamberlain  except  fees  in  naturalization  proceedings,  which  go  into  the 
federal  treasury.  He  may  be  removed  by  the  governor  on  charges  after  a  hearing. 
The  county  clerk  receives  a  salary  of  $15,000  in  New  York,  $12,000  in  Kings, 
$10,000  in  Bronx,  $8,000  in  Queens,  and  S5,000  in  Richmond 

2.  District  Attorney: 

The  (Hstrict  attorney  institutes  and  conducts  criminal  prosecutions  in  the 
county  before  the  sui)reme  court,  the  county  court  (in  New  York  County  before 
the  court  of  general  sessions),  the  court  of  special  sessions,  the  magistrates'  courts 
and  the  coroners'  courts.  He  subpoenas  witnesses  to  appear  and  examines  them 
before  the  grand  jury  and  co-operates  with  the  police  department  in  the  investiga- 

'Thc  court  of  Kt'iieral  sessions  takes  the  i)lace  of  a  county  court  on  the  criminal  side 
only.  The  city  court  is  in  effect  th.e  civil  side  of  a  New  York  county  court  hut  cannot 
be  considered  as  a  county  institution  because  (1)  it  has  jurisdiction  in  the  territory  com- 
prising both  New  York  and  Bronx  counties  (L.  1912,  C.  548.  Sec.  6);  (2)  its  expenses 
are  not  borne  by  New  York  County  alone  but  by  the  entire  city;  (3)  historically  it  was 
the  city  court  for  the  old  city  of  New  York  and  never  a  county  institution.  The  court  of 
general  sessions,  however,  is  a  survival  of  the  courts  of  general  or  quarter  sessions  which 
existed  in  every  county  of  the  state  prior  to  the  Revolution  and  were  abolished  in  counties 
other  than  New  York  by  sec.  14.  art.  6.  of  the  present  constitution.  The  court  of  general 
sessions  has  no  jurisdiction  in  Bronx  county  (L.  1912,  C.  548.  Sec.  9)  and  the  expenses 
are  borne  by  New  York  Comity  only. 


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COMMISSIONER 

SURROGATES  COURT- 


Or  RECORDS 

NEW  YORK  COUNTY 


Regular  Employees 


50-^46.420 


Examining  Conditions  of  Records-,  Providing  for  Restoration  amd 
Preser ration    of    Same. 


ADMINISTRATION 


Commissioner 
Deputy  Commissioner 


l-*5iOO0 
l-$4.000 


General   Supervision   and   Pirectibn  of  the  Activities   of 
the  Pipartmcnt 


OmCE    or   SUPERINTENDENT 


Superintendent 
Employees 


l-*3.500 
I0-»!0.520 


Supervision  of  Employees;  Examining, Condemning  and 
Repairing  Records  Purcdasing  Equipment,  Supplies  and 
Mafenah 


RECORDING    AND   INDEXING 


Chief  Recording  Clerk 
Employees 


l-*l,800 
I6-$2L600 


Annual  Inspection  of  Oirigmal  Records,  Recording,  Card- 
ing,  Starchmq  and  Ex^minin^  Condemned  Papers  in  Probak 
Proctedm^Si  Recopy/n^  Condtmntd  BooKs;  Indtxtnc^  Current 
Wills,  Letters  of /Administration,  Orders  in  Proceedin^gs,  Pe- 
crees  Im  Accouinfmgs   and   Facers    m   Ancillary     Proceedings 


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tion  of  suspected  crime.  Usually  prosecutions  are  first  instituted  before  a  magis- 
trate who  holds  the  accused,  if  there  be  sufficient  evidence,  for  trial  in  special 
sessions  (if  the  offense  is  a  misdemeanor)  or  for  the  grand  jury  (if  the  offense  is 
a  felony).  The  district  attorney,  however,  is  empowered  to  inaugurate  a  pro- 
ceeding before  the  grand  jury  in  the  first  instance.  In  New  York  and  Kings 
counties  the  district  attorney  maintains  a  homicide  bureau  which  is  (jpen  day  and 
night  for  the  investigation  of  alleged  homicides.  The  district  attorney  is  elected 
for  four  years  in  New  York,  Kings  and  I'ronx  counties,  and  for  three  years  in 
Queens  and  Richmond,  and  receives  a  salary  of  $15,000  in  New  York,  $10,000  in 
Kings  and  Bronx,  $8,000  in  Queens,  and  $5,000  in  Richmond.. 

3.  Register: 

There  is  a  register  in  New  York,  Kings  and  Bronx  counties.  In  Queens  and 
Richmond  counties  the  functions  of  register  are  performed  by  the  county  clerk. 
The  register  records  in  his  office  all  deeds,  mortgages,  leases,  chattel  mortgages 
and  conditional  sales  of  personal  property.  He  records  satisfactions  of  mortgages 
and  collects  the  state  mortgage  recording  tax.  He  also  searches  the  records  in  his 
office  for  specified  instruments  and  certifies  the  result  of  such  search.  He 
furnishes,  upon  request,  certified  copies  of  documents  filed  with  him  and  registers 
land  titles  under  the  land  title  registration  act,  commonly  called  the  Torrens  law. 
In  New  York  county  he  is  further  charged  with  the  duty  of  reco])ying  and 
certifying  old  and  mutilated  records  and  of  reindexing  old  records  according  to  the 
block  system.  The  register  is  elected  for  two  years  in  New  York  and  Kings 
counties  and  for  four  years  in  Bronx  county.  He  receives  a  salary  of  $12,000 
in  New  York  and  Kings,  and  $10,000  in  Bronx. 

4.  Commissioner  of  Records: 

In  New  York  county  there  are  two  commissioners  of  records,  one  for  the 
county  clerk's  office  and  one  for  the  surrogates'  office.  It  is  the  duty  of  each 
commissioner  to  examine  the  arrangement  and  condition  of  the  books,  papers 
and  other  records  on  file  in  such  office  and  to  do  whatever  may  be  necessary 
to  provide  for  the  restoration,  preservation,  rearrangement  and  indexing  of 
such  records.  If  he  finds  that  any  record  is  so  dilapidated  that  the  original  can- 
not be  used,  he  has  a  copy  made  and  certifies  to  its  correctness.  This  copy  is  then 
entitled  to  be  accepted  as  evidence  wherever  the  original  would  be  so  accepted. 
The  commissioner  must  preserve  the  original  in  a  suitable  enclosure  so  that  it 
may  be  consulted  by  order  of  the  court  in  any  proceeding  in  which  the  accuracy  of 
the  copy  is  questioned.  There  is  also  a  commissioner  of  records  for  Kings  county, 
who  has  charge  of  reindexing,  according  to  the  block  system,  all  instruments 
relating  to  real  estate  which  are  on  file  in  the  offices  of  the  register  and  county 
clerk.  He  is  the  custodian  of  the  records  of  the  former  towns  in  Kings  county 
and  may  cause  translations  to  be  prepared  of  Dutch  and  Old  English  manuscripts. 
He  supervises  the  rearranging,  indexing  and  preservation  in  fireproof  files  of  all 
records  in  the  offices  of  the  register,  county  clerk  and  surrogate  and  may  authorize 
such  officials  to  prepare  and  certify  copies  of  records  in  their  offices  where  the 
originals  are  too  dilapidated  for  public  use.  The  commissioner  of  records  for 
New  York  county   (county  clerk's  office)   is  appointed  by  the  county  clerk  and 


12 

receives  a  salary  of  $7,500.  The  commissioner  of  records  for  the  New  York 
surrogates'  office  is  appointed  by  the  surrogates  and  receives  a  salary  of  $5,000. 
Tlie  commissioner  of  records  for  Kings  count}-  is  appointed  by  the  register  and 
receives  a  salary  of  $5,000. 

5.  Coumiissioncr  of  Jurors: 

The  commissioner  of  jurors  selects  and  summons  trial  and  special  jurors 
for  the  supreme  court,  trial  and  grand  jurors  for  the  county  court  {'m  Xew 
York  county  for  the  court  of  general  sessions  and  trial  jurors  for  the  city  court), 
and  trial  jurors  for  the  municipal  courts  in  his  county.  Each  year  he  prepares 
a  list  of  the  residents  of  the  county  who  are  apparently  eligible  for  jury  service. 
In  the  preparation  of  this  list  he  is  assisted  by  the  department  oi  taxes  and 
assessments,  which  furnishes  names  from  the  assessment  roll.  He  examines  into 
the  qualifications  of  prospective  jurors  and  hears  and  determines  all  claims  for 
exemption  from  jury  duty.  He  may  summon  persons  before  him  to  testify  as 
to  the  qualifications  of  prospective  jurors.  The  commissioner  assists  at  the 
drawing  of  jurors,  and  the  names  of  delinquent  jurors  are  returned  to  him  for 
the  collection  of  the  statutory  fines.  In  Queens  county  the  commissioner  holds 
evening  sessions,  in  two  places  in  each  ward,  for  hearing  claims  for  exemption 
from  jury  duty.  In  Bronx  and  New  York  counties  the  commissioner  of  jurors 
is  appointed  by  the  appellate  division.  In  Kings  county  he  is  appointed  by  the 
county  judges,  district  attorney,  sherift"  and  county  clerk ;  in  Queens  county  by 
the  two  resident  justices  of  the  supreme  court  and  the  county  judge,  and  in 
Richmond  county  by  the  supreme  and  county  court  judges  and  county  clerk. 
The  commissioner  of  jurors  in  every  county  may  be  removed  by  the  appellate 
division  on  charges  after  a  hearing.  The  commissioner  of  jurors  receives  a 
salary  of  $6,000  in  New  York,  P>ronx  and  Kings,  $3,000  in  Queens  and  $1,500 
in  Richmond. 

6.  Public  Administrator: 

The  public  administrator  is  empowered  to  collect,  take  charge  of  and 
administer  upon  personal  property  and  debts  of  persons  dying  intestate  and 
leaving  assets  within  the  county  where  there  is  no  next  of  kin  entitled  or  willing 
to  administer.  He  also  administers  the  estates  of  persons  leaving  wills  with  no 
person  competent  to  probate  or  act  as  executor  thereunder.  The  eft'ects  of  persons 
dying  in  charitable  institutions  are  turned  over  to  the  public  administrator  if  they 
are  not  collected  by  relatives.  The  public  administrator  in  Kings,  Bronx  and 
Riclimond  is  a])])ointc(l  l)y  the  surrogate.  In  New  York  he  is  a])pointed-  by  the 
two  surrogates  of  that  county.  In  Queens  he  is  appointed  by  the  surrogate, 
cotmty  judge  and  sherifi".  In  New  York,  Kings  and  Queens  the  ])ul)lic  adminis- 
trators receive  salaries  of  $10,000,  $5,000  and  $1,200  respectively,  and  are  re(|uire(l 
to  pay  over  to  the  city  chamljerlain  all  fees  and  commissions  received  1)y  them. 
In  lironx  county  the  ])ublic  administrator  receives  a  salary  of  $4,000  and  is 
allowed  to  retain  his  fees  and  commissions,  but  is  re(|uire(l  lo  hire  his  subordinates 
out  of  such  moneys.  In  l\ichmond  he  receives  no  salary  but  retains  his  fees  and 
commissions.  The  public  administrator  in  Queens  and  Richmond  counties  per- 
forms all  the  worls  of  his  office  personrdly  and  has  no  subordinates. 


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13 

7.  Sheriff: 

The  sheriff,  on  mandates  of  courts  ol  record  in  his  county,  arrests  prisoners 
on  civil  processes,  levies  executions,  replevins  chattels  and  serves  summonses,  cita- 
tions, subpoenas,  writs  of  habeas  corpus  and  warrants  of  attachment.  He  is  liable 
on  his  bond  for  the  escape  of  a  prisoner  or  for  failure  properly  to  perform  his 
statutory  duties.  Where  there  is  a  contest  as  to  the  ownership  of  property  levied 
upon,  he  may  impanel  a  sheriff's  jury  and  subpoena  and  examine  witnesses  under 
oath  before  them.  He  is  the  custodian  of  the  county  jail,  where  civil  prisoners 
are  confined  (in  Kings  the  sheriff'  has  jurisdiction  over  a  portion  of  the  Brooklyn 
city  prison  for  this  purpose)  and  is  responsible  for  the  transportation  of  criminal 
prisoners.  In  Bronx  and  Richmond  the  department  of  correction  has  no  juris- 
diction, and  hence  the  sheriff'  exercises  the  function  of  keeping  criminal  prisoners, 
which,  in  New  York,  Kings  and  Queens  counties  is  performed  by  the  department 
of  correction.  In  Bronx  and  Richmond  criminal  prisoners  are  also  confined  in 
the  county  jail,  but  criminals  sentenced  for  more  than  six  months  are  committed 
to  institutions  outside  of  the  county  under  the  jurisdiction  of  the  department  of 
correction  or  to  the  state  prison  at  Sing  Sing,  and  hence  do  not  come  under 
the  sheriff''s  jurisdiction.  The  sheriff*  is  elected  for  two  years  in  Xew  York 
and  Kings,  three  years  in  Queens  and  Richmond,  and  four  years  in  Bronx.  He 
may  not  succeed  himself  in  office  and  may  be  removed  by  the  governor  on  charges 
after  a  hearing.  The  sheriff's  of  Kings,  Queens  and  Bronx  counties  receive  salaries 
of  $15,000,  $10,000  and  $10,000,  respectively,  in  heu  of  all  fees  received  by  the 
office,  which  must  be  paid  over  to  the  city  chamberlain.  The  sheriff  of  Xew 
York  county  receives  a  salary  of  $12,000  and  half  the  fees  of  his  office  in  addition. 
The  sheriff  of  Richmond  receives  a  salary  of  $6,000  and  may  retain  all  fees 
received  by  his  office. 

8.  County  Courts  and  Court  of  General  Sessions: 

The  county  courts  in  Kings,  Queens,  Bronx  and  Richmond  and  the  court  of 
general  sessions  in  New  York  are  courts  of  record  having  criminal  jurisdiction 
to  inquire  by  intervention  of  a  grand  jury  into  crimes  committed  or  triable  in  the 
county  and  to  try  all  indictments  including  those  for  crimes  punishable  with 
death  or  life  imprisonment.  They  also  hear  appeals  from  magistrates'  decisions 
and  entertain  writs  of  habeas  corpus.  In  addition  the  four  county  courts  have 
original  civil  jurisdiction  in  actions  for  the  recovery  of  money  or  of  chattels 
where  the  defendants  reside  within  the  county  and  in  which  the  plaintiff  demands 
judgment  for  a  sum  not  exceeding  $2,000  or  where  the  value  of  the  chattels  in- 
volved is  not  over  $1,000.  The  county  courts  also  have  jurisdiction  over  actions 
for  partition,  dower,  specific  performance,  foreclosure  of  mortgages  and  fore- 
closure of  liens  of  not  over  $1,000  on  chattels  within  the  county.  The  county 
courts  have  concurrent  jurisdiction  with  the  supreme  court  over  the  property  of 
persons  declared  incompetent.  Judges  of  general  sessions  are  elected  for  four- 
teen years  and  the  county  judges  are  elected  for  six  years.  There  are  seven 
judges  of  general  sessions,  each  receiving  a  salary  of  $17,500.  There  are  five 
county  judges  in  Kings,  each  receiving  a  salary  of  $10,000  and  additional  com- 
pensation of  $2,500  for  services  in  drawing  jurors.  The  county  judge  of  Bronx 
County  receives  a  salary  of  $10,000;  the  county  judges  in  Queens  and  Richmond 
counties  receive  salaries  of  $10,000  and  $7,500  respectively  and  additional  com- 
pensation of  $2,500  each  for  services  in  drawing  jurors.  The  county  judge  of 
Richmond  County  is  also  the  surrogate. 


#     0^fe>'A 


14 

9.     Surrogate's  Court: 

The  surrogate's  court  is  a  court  of  record.  It  has  jurisdiction  to  take  proof 
of  wills  and  to  admit  them  to  probate;  to  grant  and  revoke  letters  testamentary 
and  letters  of  administration;  to  control  the  conduct  and  settle  the  accounts  of 
executors,  administrators  and  testamentary  trustees;  to  enforce  the  payment  of 
debts  and  legacies  and  the  distribution  of  estates  of  decedents ;  to  direct  the  dis- 
position of  real  property  of  decedents ;  to  appoint  and  remove  guardians  for  in- 
fants, compel  delivery  by  them  of  property  belonging  to  their  wards,  direct 
their  conduct  and  settle  their  accounts ;  to  settle  the  accounts  of  parents  or  other 
relatives  having  the  powers  of  guardians  in  socage ;  and  to  determine  the  validity, 
construction  or  efifect  of  any  disposition  of  property  contained  in  a  will.  The 
surrogate  may  subpoena  witnesses  to  testify,  administer  oaths  and  punish  for 
contempt.  Wills,  letters  testamentary,  letters  of  administration  and  letters  of 
guardianship  are  recorded  in  his  court  with  the  surrogate's  decree  concerning 
them,  and  he  certifies  to  transcripts  thereof.  There  are  two  surrogates  in  New 
York  County,  each  of  whom  is  elected  for  fourteen  years.  In  each  of  the  other 
counties  there  is  one  surrogate,  elected  for  six  years  (the  county  judge  is  surro- 
gate in  Richmond).  Each  surrogate  receives  a  salary  of  $15,000  in  New  York 
and  Kings  and  $10,000  in  Bronx  and  Queens. 

Recapitulatioti: 

These  forty  separate  county  departments  are  listed  below  showing  the  au- 
thority under  which  each  exists,  how  the  head  of  the  office  is  chosen,  and  what 
compensation  he  receives : 


Office. 


Exists 

Under  What 

Authority. 


Elective  or  Appointive. 


Compen- 
sation. 


New  York  County: 

1  County  Clerk 

2  District  Attorney 

3  Register 

4  Commissioner  of  Records. .  .  . 

5  Commissioner     of      Records, 

Surrogates'  Court 

6  Commissioner  of  Jurors 

7  I^ublic  Administrator 

Sheriff 


8 


9     Court     of    General     Sessions 

(7  judgt's) 

10     Surrogates'    Court    (2    surro 
gates)  


Bronx  Count \: 

11  C<junty  Clerk.  .  .  . 

12  District  Attorney 

13  Register 

14  Commissioner  of  Jurors.  . 

15  Public  Administrator.  .  .  . 

16  Sheriff 

17  Surrogate's  Court 

18  County  Court 

Kings  County: 

19  County  Clerk 

20  District  Attorney 

21  Register 

22  Commissioner  of  Records 


Constitution 
Constitution 
Constitution 
Statute 


Statute 

Statute 

Statute 

Constitution 


Constitution 
Constitution 


Statute 
Statute 
Statute 
Statute 
Statute 
Statute. 
Statute. 
Statute. 


Constitution 
Constitution 
Constitution 
Statute 


Elective 

Elective 

Elective 

Appointed  by  County  Clerk .  . 

Appointed  by  Surrogates 

Appointed  by  Appellate  Division 

Appointed  by  Surrogates 

Elective 


Elective 


and 


Ek'clixe . 


Elective.  . 

Elective 

Elective :•••.• 

Appointed  by  Appellate  Division 

Appointed  by  Surrogate 

Elective 

Elleclive. . 
Elective.  . 

Elective 

Elective 

l{;iective 

Appointed  by  Register 


$15,000 

15,000 

12,000 

7,500 

5,000 

6,000 

10,000 

12,000 

5^  fees 

17,500 

15.000 


10,000 
10,000 
10,000 
6,000 
4,()()() 
10,000 
10,000 
lO.OOO 


12,000 

10,000 

12,000 

5.000 


Office. 


15 


Exists 

Under  What 

Authority. 


Elective  or  Appointive. 


Compen- 
sation. 


Kings  County: 

23     Commissioner  of  Juror? 


Statute. 


24  Public  Administrator .  .  .  . 

25  Sheriff 

26  Surrogate's  Court 

27  County  Court  (5  judges) 

Queens  County: 

28  County  Clerk 

29  District  Attorney 

30  Commissioner  of  Jurors  . 


31      Public  Administrator 


32  Sheriff  .  .  .^ 

33  Surrogate's  Court 

34  County  Court . . .  . 


Richmond  County: 

35  County  Clerk 

36  District  Attorney 

37  Commissioner  of  Jurors 


38  Public  Administrator 

39  Sheriff ^ 

40  County  Court  and  Surrogate's 

Court  (1  incumbent) .... 


Statute 

Constitution 
Constitution 
Constitution 


Constitution 
Constitution 
Statute 


Statute 


Constitution 
Constitution 
Constitution 


Constitution 
Constitution 
Statute 


Statute 

Constitution 

Constitution 


Appointed  by  County  Judges, 
District  Attorney,  Sheriff  and 
County  Clerk  (1915) 

Appointed  by  Surrogate 

Elective 

Elective 

Elective.  .• 


Elective 

Elective 

Appointed    by    Supreme    Court 

Justices  and  County  Judge .  .  . 
Appointed  by  Surrogate,  County 

Judge  and  Sheriff 

Elective 

Elective 

Elective 


Elective 

Elective 

Appointed  by  Supreme 
County  Court  Judges 
County  Clerk 

Appointed  by  Surrogate . .  . 

Elective 


and 
and 


Elective 


S6,000 
5,000 
15,000 
15,000 
10.000 


8,000 
8,000 

3,000 

1,200 
10,000 
10,000 
10,000 


5,000 
5,000 


1,500 
Fees  only 

6,000 
and  fees 

7,500 


NOTE — The  organization  and  functions  of  each  of  the  above  offices  are  described  in  further 
detail  at  pp.  1142  to  1335  of  "Government  of  the  City  of  New  York,  A  Survey  of  Its  Organiza- 
tion and  Functions,"  prepared  for  the  Constitutional  Convention  1915  by  the  Office  of  the 
Commissioner  of  Accounts  and  the  New  York  Bureau  of  Municipal  Research. 


COST  OF  COUNTY  GOVERNMENT. 


The  cost  of  county  government  for  1914  (represented  by  budget  and  rev- 
enue bond  allowances  plus  charges  for  light  and  power  and  for  pensions  paid  to 
retired  county  employees)  was  $7,348,010.86,  as  shown  by  the  following  table: 


Counties. 


Pensions  Paid 

Budget         Revenue  Bond     Light  and      to  County  ^ 

Total.^  Allowances.       Allowances.         Power.      Employees," 

1914. 

$4,108,855  87  $3,906,164  34  $199,793  60  $1,627  78  $1,270  15 

592,047  00  273,941  68  314,691  10  3,414  22    

1.997.863  04  1,860.550  31  124,11122  10.747  35  2.454  16 

482,483  22>  449,797  00  22.138  ^7  10.547  36    

166,761  72  139.712  32,  25.123  39  1,926  00    

$7,348,010  86  $6,630,165  66   $685,858  18  %2%262   71   $3,724  31 


New^  York 
Bronx    

Kings  .... 
Queens  . . . 
Richmond 

Total 


'For  detailed  cost  of  New  York  County  Government  see  Table  1. 

For  detailed  cost  of  Bronx  County  Government  see  Table  2. 

For  detailed  cost  of  Kings  County  Government  see  Table  3. 

For  detailed  cost  of  Queens  County  Government  see  Table  4. 

For  detailed  cost  of  Richmond  County  Government  see  Table  5. 

'Additional  Supreme  Court  pensions  amounting  _to  $6,400  are  included  in  the  budget 
allowances  for  New  York  County,  under  L.  1911  C.  855.  The  total  pensions  paid  to  County 
employees  therefore  were  $10,124.31. 


16 

EFFECT  OF   MANDATORY   LEGISLATION. 

The  *'  Study  of  the  Effect  of  ^Mandatory  Legislation  upon  the  Budget  for  the 
Year  1915  "  recently  published  by  the  office  of  the  Commissioner  of  Accounts, 
shows  that  of  the  total  budget  allowance  for  county  purposes  for  1915  of  $7,033,- 
716.82: 

(a)  $4,858,773.47  or  69.1  per  cent,  represented  mandatory  appropriations 
which  could  not  be  increased  or  decreased  by  the  budget  makers,  either  because 
the  exact  amount  was  fixed  by  law  or  because  the  power  of  fixation  was  conferred 
upon  officers  other  than  the  budget  makers.     Of  this  sum : 

$2,547,562.04  was  appropriated  for  New  York  County. 
432,940.68  was  appropriated  for  Bronx  County. 
1,520,853.52  was  appropriated  for  Kings  County. 
283,498.54  was  appropriated  for  Queens  County. 
73,918.69  was  appropriated  for  Richmond  County. 


$4,858,773.47 

(b)  $661,785.00  or  9.4  per  cent,  was  appropriated  for  items  as  to  which 
any  reasonable  expense  necessarily  incurred  must  be  paid,  irrespective  of  the 
amount  of  appropriation  allowed  in  the  budget.    Of  this  sum: 

$422,700.00  was  appropriated  for  New  York  County. 
31,500.00  was  appropriated  for  Bronx  County. 
156,600.00  was  appropriated  for  Kings  County. 
43,585.00  was  appropriated  for  Queens  County. 
7,400.00  was  appropriated  for  Richmond  County. 


$661,785.00 

(c)     Leaving  $1,513,158.35  or  21.5  per  cent,  discretionary  with  the  budget 
makers,  of  which  sum 

$845,304.37  was  appropriated  by  New  York  County. 
235,213.78  was  appropriated  by  Bronx  County. 
229,669 .  00  was  appropriated  by  Kings  County. 
137,963.20  was  appropriated  by  Queens  County. 
65,008.00  was  appropriated  by  Richmond  (Tounty. 


$1,513,158.35 

It  is  further  shown  by  the  *'  Study  of  the  Effects  of  Mandatory  Legislation  " 
that  of  the  $5,809,481.75  appropriated  for  personal  service  in  county  offices  for 

1915: 

(a)     $4,576,985.75  or  78.78  per  cent,  was  mandatory  as  above  defined  (see 

(a)  above).    Of  this  sum: 

$2,370,808.70  was  appropriated  for  New  York  County. 
397,506.30  was  appropriated  for  Bronx  County. 
1,462,353.52  was  appropriated  for  Kings  County. 
274,898.54  was  appropriated  for  Queens  County. 
71,418.69  was  appropriated  for  Richmond  County. 


$4,576,985.75 


^7,03},7/6.8Z 


'  Pi/epo5£s  w  BC£>G£r  roe  /9/3  - 
^5,  mm  7^ 


i 


17 

(b)  $9,650.00  or  .01  per  cent,  was  appropriated  for  items  as  to  which  rea- 
sonable expenses  were  mandatory,  irrespective  of  the  amount  appropriated.  Of 
this  sum : 

$6,000.00  was  appropriated  for  New  York  County. 
1,000.00  was  appropriated  for  Bronx  County. 
1,150.00  was  appropriated  for  Kin^s  County. 
1,500.00  was  appropriated  for  Queens  County. 
Nothing  was  appropriated  for  Richmond  County. 


$9,650.00 


(c)     Leaving  $1,222,846.00,  or  21.05  per  cent.,  discretionary  with  the  budget 
makers,  of  which  sum: 

$708,582.00  was  appropriated  for  New  York  County. 
193,315.00  was  appropriated  for  Bronx  County. 
159,767.00  was  appropriated  for  Kings  County. 
111,864.50  was  appropriated  for  Queens  County. 
49,317.50  was  appropriated  for  Richmond  County. 


$1,222,846.00 


Even  as  to  the  amounts  here  described  as  discretionary  with  the  budget 
makers,  the  discretion  is  limited  by  the  fact  that  the  law  requires  that  certain 
functions  be  performed  in  each  of  the  five  counties.  It  is  the  duty  of  the  budget 
makers  to  provide  the  funds  necessary  to  execute  these  functions,  although  they 
may  slightly  increase  or  decrease  the  salaries  or  the  number  of  positions  where 
those  are  not  fixed  by  law. 

It  is  important  to  note  that  the  constitution  gives  the  mayor  of  the  city  of 
New  York  no  veto  power  over  bills  affecting  county  offices  within  the  city.  In 
this  field,  therefore,  the  greatest  number  of  bills  financially  burdensome  to  the 
city  have  been  enacted  by  the  legislature.  Every  year  the  legislature  grants  salary 
increases  to  county  officers  and  employees  over  the  heads  of  the  board  of  esti- 
mate in  amounts  frequently  exceeding  the  value  of  the  service  rendered,  or 
confers  upon  county  officers  instead  of  upon  the  central  city  administration 
power  to  increase  salaries. 

The  legislature  has  left  the  board  of  estimate  and  apportionment  and  the 
board  of  aldermen  no  power  whatever  over  the  payrolls  of  the  following  county 
offices  :^ 

New  York  County — 

Commissioner  of  Records 

Commissioner  of  Records  for  Surrogates'  Court 

Commissioner  of  Jurors 

Surrogates'  Court 

Bronx  County — 

Commissioner  of  Jurors 
Public  Administrator 


^See  "  Study  of  the  Effect  of  Mandatory  Legislation.' 


18 

Kings  County — 

Commissioner  of  Records 
Surrogate's  Court 

Queens  County — 

Public  Administrator 

Richmond  County — 

Commissioner  of  Jurors 

]\Iore  than  75  per  cent,  of  the  payrolls  of  the  following  county  oftices  is 
mandatory   upon   the   budget   makers: 

County  Clerk's  oflice,  Kings 

District  Attorney's  office,  Kings 

Register's  ofifice,  Kings 

Sheriff's  office,  Kings 

County  Court,  Kings 

District  Attorney,  Bronx 

County  Clerk,  Queens 

County  Court,  Queens 

District  Attorney,  Richmond 

Court  of  General  Sessions,  New  York 

^iore  than  half  of  the  payroll  cost  of  each  of  the  following  county  offices  is 
mandatory  upon  the  boards  of  estimate  and  aldermen: 

District  Attorney,  New  York 

Public  Administrator,  New  York 

Sheriff,  New  York 

County  Clerk,  Bronx 

Sheriff,  Bronx 

Surrogate's  office,  Bronx 

Commissioner  of  Jurors,  Queens 

Sheriff,  Richmond 

County  Court  and  Surrogate's  Court,  Richmond 

The  legislature  has  compelled  the  city  to  appropriate  annually  for  the  com- 
missioners of  records  of  New  York  and  Kings  Counties  an  unsegregated  amount 
of  $100,000  each,  which  the  commissioners  may  spend  for  salaries  and  expzenses, 
if  they  see  fit,  with  no  control  by  the  city  other  than  a  financial  audit. ^  As  to 
the  commissioner  of  jurors  for  New  York  County  not  only  the  entire  payroll 
allowance  is  mandatory  u])on  the  city,  but  the  allowance  for  supplies  as  well.^ 

The  effect  of  mandatory  s])ecial  legislation  ui)on  the  cost  of  county  govern- 
ment is  strikingly  shown  by  the  following  payroll  bills  which  became  law  in  1912: 

Asseml)lyman  \\'alker's  bill  increasing  the  annual  salaries  of  9  record 
clerks  in  the  court  of  general  sessions  from  $2,000  to  $3,000  each; 
Senator  I^Tawley's  bill  increasing  from  11  to  13  the  number  of  deputy 
clerks  to  be  appointed  for  the  court  of  general  sessions;  Assemblyman 
Ko])p's  bill  increasing  the  salaries  of  ])r()cess  servers  in  district  attorney's 

'St'L-  "Study  of  tlu-   VA'fvci   of   Mandatorv   l.c.uislation." 


19 

office  of  New  York  County;  Senator  McManus'  l)ill  increasing  from  $6,000 
to  $7,500  the  annual  salary  of  the  commissioner  of  records  in  Xew  York 
County ;  Assemblyman  Fitzgerald's  bill  providing  for  an  assistant  counsel 
to  the  sheriff  of  New  York  County  at  an  annual  salary  of  $3,000. 

In  that  year  also  the  legislature,  while  acceding  to  the  demands  that  the  fee 
office  of  Queens  county  clerk  be  placed  upon  a  salary  basis,  took  occasion  to  in- 
clude in  the  law^  mandatory  salary  schedules  increasing  the  payroll  from  $89,000 
to  $106,000  per  annum. 

The  legislature  has  not  confined  itself  to  fixing  the  salaries  of  important 
officers  only,  but  has  concerned  itself  with  the  number  and  salary  of  cooks  for 
the  Richmond  and  Kings  county  jails  and  office  boys  in  the  Queens  county  clerk's 
office.  The  legislature  not  only  fixed  the  compensation  of  the  county  clerk  and 
deputy  in  Kings  County,  but  also  fixed  the  following  positions  and  the  annual 
salary  for  each : 

*' The  expert  of  records,  $3,000;  the  assistant  deputy  county  clerk, 
$2,500;  chief  clerk  in  charge  of  law  department,  $2,500;  chief  clerk  of 
certificates,  satisfactions  and  mechanics'  liens,  $2,000;  one  equity  clerk  in 
charge  of  equity  department,  $2,000;  three  equity  clerks,  each  $1,500;  one 
docket  clerk  in  charge  of  docket  department,  $2,000;  two  docket  clerks, 
each  $1,500;  one  secretary,  $1,500;  one  cashier,  $2,000;  one  stenographer, 
$1,200;  one  bookkeeper,  $2,000;  two  document  searchers,  each  $1,200; 
three  index  clerks,  $1,500;  chief  clerk  in  charge  of  marriage  license  depart- 
ment, $1,500;  four  clerks  in  marriage  license  department  each  $1,200;  two 
comparing  clerks,  $1,000;  two  messengers,  $800;  one  chief  of  old 
records,  $1,100;  two  assistant  old  record  clerks,  $1,000;  three  custodians, 
each  $1,000;  one  notarial  clerk,  $2,250.'' 

INEQUALITIES  IN  SALARIES. 

Great  inequality  has  resulted  from  mandatory  salary  increases  for  various 
county  positions  granted  by  the  legislature  from  year  to  year.  For  example,  the 
chief  clerk  of  the  Kings  County  Court,  with  only  two  court  parts  and  55  subordi- 
nates, receives  a  mandatory  salary  of  $7,500,  while  the  salary  of  the  chief  clerk 
of  the  court  of  general  sessions  (county  court.  New  York  County)  with  six 
court  parts  and  113  subordinates,  is  fixed  by  the  legislature  at  $5,000.  The  salary 
of  the  warden  of  the  Grand  Jury,  Kings  County,  is  mandatory  at  the  sum  of 
$3,500,  while  the  salary  of  the  warden  of  the  Grand  Jury  of  New  York  County, 
fixed  by  the  Board  of  Estimate  and  the  Board  of  Aldermen,  is  $2,000.^  The 
stenographers  of  the  Court  of  General  Sessions  (six  in  number  for  six  parts)  re- 
ceive $3,600  as  against  $4,000  in  the  Kings  County  Court  where  there  are  four 
stenographers  for  only  two  parts.  The  salary  of  secretary  to  the  county  judge 
is  $3,000  in  Bronx  County  as  compared  with  $2,000  in  Kings  and  Queens 
Counties.-  In  the  Kings  County  Court  there  is  a  chief  court  attendant  at  $3,500. 
twelve  court  attendants  at  $2,000  and  six  court  attendants  at  $1,800,  while  in  the 
other  county  courts  and  the  court  of  general   sessions   no  court  attendant   re- 

'There  is  an  additional  warden  in  Xew  York  County  who  also  receives  $2,000.  Init 
there  are  two  grand  juries  constantly  sitting  in  Xew  York  while  an  additional  Grand  Jury 
is  very  rarely  called  in  Kings  County. 

"Called  confidential  clerks  in  Kings  and  Queens  Counties. 


20 

ceives  more  than  $1,800,  and  there  is  no  other  chief  court  attendant  except  in 
Queens  where  his  salary  is  $1,800.  County  detectives  in  Kings  County  receive 
$3,000  as  compared  with  $2,000  in  Bronx  and  Queens.  The  compensation  for  the 
position  of  stenographer  and  typewriter  in  Kings  County  Court  is  $2,400  while  in 
the  Bronx  County  Court  it  is  $1,200. 

These  inequalities  in  salaries  are  due  rather  to  overpayment  of  the  employees 
receiving  the  larger  sums  rather  than  to  underpayment  of  incumbents  receiving 
the  lower  figures.  The  duties  of  court  attendants  in  the  Kings  County  Court, 
for  example,  in  maintaining  order  in  the  court,  while  analogous  to  those  of 
policemen  in  maintaining  the  public  peace,  is  far  less  onerous.  The  court  at- 
tendant is  rarely  called  upon  to  perform  a  duty  other  than  standing  in  court  and 
preserving  order  by  his  mere  presence.  The  qualifications  both  physical  and 
mental  for  entrance  into  the  police  service  are  far  more  rigid  than  the  qualifica- 
tions for  court  attendant.  The  work  of  the  court  attendant  does  not  begin  until 
the  opening  of  court  at  10  to  10.30  A.  AL,  and  invariably  ends  when  court 
adjourns,  rarely  later  than  5  P.  M.  He  has  the  benefit  of  all  court  adjournments 
and  an  extended  vacation  of  at  least  four  w^eeks  when  the  court  is  closed  in 
summer,  all  Sundays  and  holidays  free,  besides  the  relief  from  duty  when 
calendars  break  down  or  the  court  adjourns  before  the  end  of  the  monthly  term. 
His  expense  for  uniforms  is  nominal  as  compared  with  the  policeman's.  If  it  is 
assumed  that  the  patrolman's  salary  of  $1,000  to  $1,400  is  a  fair  return  for  the 
service  rendered  it  must  be  conceded  that  the  salaries  of  the  Kings  County  Court 
attendants  at  $1,800  and  $2,000  are  grossly  excessive.  The  maximum  proper 
salary  for  court  attendant  would  appear  to  be  that  fixed  by  the  budget  makers 
for  attendants  in  the  city  magistrates'  courts,  namely,  $1,200.  Again,  if  it  is 
assumed  that  the  salary  of  $2,250  received  by  a  first  grade  lieutenant  assigned 
to  the  detective  bureau  is  a  just  one,  payment  of  $3,000  per  annum  to  county  de- 
tectives in  Kings  County  who  are  apparently  doing  probation  officers'  work  is 
unquestionably  excessive. 

INCREASE  IN  COUNTY  EXPENSES. 

Under  compulsion  of  special  legislation  not  subject  to  the  mayor's  veto, 
budget  a])propriations  for  county  purposes  have  steadily  increased  until  they  have 
nearly  doubled  within  the  last  fifteen  years  as  shown  by  the  following  table: 

Total 
County  lUidgct  A])propriations 
1  exclusive  of  State  Tax. 

1901    $3,701,916  17 

1902  3,731,330  13 

1903  3.776,266  43 

1904  3.762,230  50 

1905  4.097,090  81 

1906  4.230.775  51 

1907  4.740.543  63 

1908  5,097,862  28 

1909  5.175,796  23 

1910  5,355,124  84 

1911  5,453.805  25 


I 


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21 


Total 

County  Uiulget  .Appropriations 

Exclusive  of  State  Tax. 

1912    5,915.808  43 

1913    6,234,661  86 

1914    6,630,165  66 

1915    7.033,716  82 

Increase  1915  over  1901,  $3,331,800.65,  or  90  per  cent. 

This  increase  in  county  appropriations  is  not  to  be  explained  on  the  ground 
of  increased  business,  for  in  fee  earning  offices  the  increase  in  fees  has  not  kept 
pace  with  the  increase  in  appropriations,  as  shown  by  the  following  table  and 
accompanying  charts : 


Comparison  Between  Budget  and  Revenue  Bond  Allowances  and  Fees  Collected 
BY  Fee  Earning  County  Offices  and  Retained  by  the  City. 


m 

m 

m 

w 

no 

^11 

512 

m 

914— 

New  York, 
Kings, 
Queens 
and 

Richmond . 
Bronx 
County . . . , 


Budget 
Allowances. 


Revenue 

Bond 

Allowances. 


Total 
Appropriated. 


Fees 

Retained 

by  City 

(See  Table 6), 


Excess 
Over 
Fees. 


Percentage 

of  Fees 

Retained  by 

City  to  Total 

Appropriations. 


$1,687,222  50 
1.864.844  50 


1.908.226 
2.012.177 
2.022,617 
2.145.311 
2.298.202 
2.444.801 


00 
00 
00 
00 

75 


$204,081  93 

132,201  53 

114.322  89 

74.063  97 

116,144  41 

73,677  26 

73,540  82 

63,200  59 


$1,891,304  43 
1,997,046  03 
2.022.548  89 
2.086.240  97 
2,138,761  41 
2.213,988  26 
2.371.743  57 
2.508.001  84 


$623,610  97 
554,446  70 
518.347  34 
577,667  53 
577,139  04 
548,647  33 
563,865  83 
CG9,\83  20 


$1,267,693  46 
1,442.599  33 
1.504.201  55 
1,508,573  44 
1,561,622  37 
1,665,340  93 
1,807,877  74 
1,898,818  64 


33% 
28% 
26% 
28% 
27% 
25% 
24% 
24% 


2,484,276  15    196,998  97   2,681,275  12    547,940  75        2,133,334  37  24% 

182.100  00     110.704  98    292,804  98     55.479  37    237.325   61     19% 

$19,044,778  15   $1,158,937  35  $20,203,715  50   $5,176,328  06  $15,027,387  44     26% 


22 
INADEQUACY  OF  FEES. 

Although  the  theory  underlying  the  collection  of  fees  is  that  the  fee  represents 
suffiicient  payment  to  defray  the  cost  of  rendering  the  service,  none  of  the  fee 
earning  offices  is  self  supporting^  (see  accompanying  charts  and  Table  6).  This 
has  not  always  been  the  case.  Twenty  years  ago  most  of  the  county  offices  were 
conducted  upon  the  basis  that  all  of  the  fees  received  were  the  property  of  the 
incumbent.  They  were  not  only  self-sustaining,  but  netted  considerable  fortunes 
for  the  officials.  This  is  evident  from  the  fact  that  they  were  much  sought  after 
politically  and  large  campaign  expenses  were  incurred  with  the  knowledge  that 
if  successful  the  profits  of  the  office  would  amply  repay  the  expense.  When 
these  offices  were  successively  placed  upon  a  salary  basis  there  was  not  the  same 
incentive  to  secure  legislative  revision  of  the  fee  schedules  so  that  they  would 
yield  the  cost  of  the  service  rendered.  In  consequence  fees  have  long  remained 
unchanged  and  are  to-day  in  most  instances  grossly  disproportionate  to  the  cost 
of  the  service  for  which  they  are  paid. 

The  commission  on  new  sources  of  city  revenue,  in  its  report  submitted 
to  the  Mayor  under  date  of  January  11,  1913,  recommended  an  increase  in  the 
fees  of  the  registers  and  county  clerks  and  stated : 

"  The  fees  charged  by  the  registers  and  county  clerks  are  at  present 
insufficient  to  defray  the  expenses  incurred  by  their  respective  offices. 
The  whole  burden  of  sustaining  these  offices  should  be  borne  by  those 
particularly  benefited  by  their  services.  *  *  *  /\  public  office  created 
and  conducted  to  safeguard  property  interests  should  be  self-sustaining  and 
the  maintenance  thereof  borne  by  the  individuals  most  interested.  *  *  * 
These  offices  should  be  self-supporting  and  that  they  are  not  so  is  due 
to  the  present  schedule  of  fees  that  have  remained  practically  unchanged 
for  many  years,  until  now  they  are  inadequate  and  unproportionate  to  the 
actual  cost  of  the  services  rendered.  *  *  *  By  the  adoption  of  the 
suggestions  hereinbefore  proposed  embodying  the  revision  of  fees,  etc., 
it  is  apparent  that  the  deficiencies  now  existing  in  the  maintenance  of  these 
offices  will  be  eliminated  and  the  cost  of  sustaining  them  will  thus  fall 
upon  those  who,  in  accordance  with  the  principles  of  equity  and  justice, 
can  ofifer  no  valid  objection." 

SHERIFF'S  FEES  AND  EXPENSES. 

In  New  York  and  Richmond  Counties  the  sheriff  receives  both  salary  and 
fees.  In  Richmond  he  gets  $6,000  and  all  his  fees;  in  New  York  $12,000  and 
half  his  fees.2 

Table  7  shows  the  results  of  an  examination  of  the  receipts  of  the  New  York 
County  sheriff's  office  and  their  distribution  for  the  years  1906  to  1914,  both 
inclusive. 

It  appears  therefrom  that  in  addition  to  his  annual  salary  the  sheriff  of  New 


'The  registers  of  New  York,  Kinps  and  Bronx,  and  the  county  clerks  of  Queens  and 
Richmond  collect  the  mortgage  recording  tax,  half  of  which  goes  to  the  State,  but  this 
should  not  he  included  in  computing  the  revenue  produced  by  the  office  as  it  is  not  received 
in  r("turn    for  service  rendered. 

'L.  1911,  C.  701  and  L.  1913,  C.  373. 


23 

York  County  has  received  as  his  part  of  the   fees  of  the  office  the    following 
sums  ; 

1906   $29,488.72 

1907    35,859.62 

1908 45,214.50 

1909  40,217.92 

1910   48,924.72 

1911   44,224.52 

1912 ;.  53,184.88 

1913  51,505.85 

1914  59,703.71 

Total   $408,324.44 

The  sheriffs  who  held  office  during  the  period  under  examination  received 
in  addition  to  their  salaries,  the  following  sums  as  their  share  of  the  fees : 

Nicholas  J.  Hays   (1906-1907) $70,193.91 

Thomas  F.  Foley  ( 1908-1909) 92,594.84 

John  S.  Shea  (1910-1911) 95,623.91 

Julius  Harburger    (1912-1913) 98,769.24 

kax  S.  Grifenhagen  (1914) 45,147.34 


$402,329.24 
Amounts  received  during  period  from  January  1, 
1906,  to  December  31,   1914,  by  ex-sheriffs 
who  held  office  prior  to  1906 5,995.20 


$408,324.44 


The  cost  of  operation  of  the  sheriff's  office.  New  York  County,  during  the 
same  period  was  $1,274,797.25,  as  shown  by  budget  allowances  and  revenue 
bond  funds  allotted.  The  net  fees,  interest,  etc.,  received  by  the  city  during  this 
period  totalled  $440,103.44,  showing  that  the  net  cost  of  maintenance  to  the  city 
over  and  above  its  share  of  the  fees  and  receipts  from  all  other  sources  by  the 
sheriff's  office  w^as  $834,693.81,  distributed  as  follows: 

1906   $95,881.80 

1907  92,550. 14 

1908  86,677.97 

1909 93,989. 19 

1910 82,478.87 

1911  87,637.08 

1912  96,371 .90 

1913 101,905.13 

1914  97,201 .73 

Total   $834,693.81 

In  two  reports  of  the  commissioners  of  accounts  to  the  mayor  it  was 
recommended  that  legislation  be  enacted  limiting  the  compensation  of  the  sheriff 


24 

to  his  present  salary  of  $12,000  per  annum,  and  vesting  all  the  fees  of  the  office 
in  the  city.  The  present  New  York  County  sheriff  has  stated  his  agreement  with 
this  recommendation,  and  recently  caused  a  bill  to  be  introduced  in  the  legislature 
embodying  the  suggested  legislation,  but  it  failed  of  passage. 

It  has  been  urged  in  opposition  to  that  recommendation  that  the  sheriff's 
risk  of  personal  Hability  for  torts  "committed  by  him  in  good  faith,  incident  to  the 
performance  of  his  official  duties,  is  such  as  to  render  inequitable  the  withdrawal 
of  his  participation  in  the  fees  of  his  office. 

This  position  appears  to  be  untenable  in  view  of  the  following: 

1.  The  sheriff"  of  New  York  Count}-  is  provided  at  city  expense  with  a 
counsel  who  receives  an  annual  salary  of  $6,000  (L.  1890,  ch.  523,  sec.  1),  and 
with  an  assistant  counsel  who  receives  an  annual  salary  of  $3,000  (L.  1912,  ch. 
500). 

2.  The  sheriff'  may  and  does  demand  indenniity  from  parties  interested 
before  proceeding  in  any  case  in  which  the  possibility  of  personal  liability  is 
present. 

3.  The  sheriff'  demands  and  receives  at  the  city's  expense,  indemnity  from 
such  of  his  subordinates  as  can  by  any  possibility  subject  him  to  personal  lia- 
bihty  in  the  course  of  performance  of  their  duties. 

4.  Inquiry  of  past  incumbents  of  the  office  of  sheriff"  of  New  York  County, 
as  far  back  as  1900,  discloses  no  instance  of  personal  loss  actually  sustained. 
Sheriff  Dunn  (1898-1899),  did  sustain  liability  which  probably  could  have  been 
avoided  by  the  exercise  of  the  greater  degree  of  caution  which  his  successors 
have  manifested. 

Accordingly  it  would  seem  that  with  the  advice  of  counsel  to  avoid  the  in- 
currence of  liability,  and  with  indemnity  to  cover  liability  if  incurred,  there  is  no 
justification  for  the  continuance  of  the  New  York  sheriff"'s  participation  in  the 
fees  of  his  office.  This  argument  applies  with  equal  force  to  the  Sheriff*  of 
Richmond  County. 

The  cost  of  maintaining  five  sheriff's'  offices,  as*shown  by  the  budget  for 
1915,  is  $432,913.50,  divided  as  follows:  New  York  County,  $159,864.50;  Bronx 
Coimty,  $101,600.00;  Kings  County,  $92,827.00;  Queens  County,  $45,947.00; 
Richmond  County,  $32,675.00.  An  examination  of  the  sheriff"'s  off"ice  of  New 
York  County  to  ascertain  the  volume  of  business  for  the  year  1914,  showed 
that  during  the  year  a  total  of  30,127  processes  were  received  and  acted  upon 
by  that  official  and  his  subordinates.  The  bulk  of  these  were  executions  against 
property,  which  numbered  18,723,  or  62.14  per  cent,  of  the  total  business  of  the  • 
office.  The  receipt  and  entry  of  these  30,127  processes  required  the  services  of 
eleven  employees.  The  average  number  of  processes  received  daily  was  ap- 
I)roximately  100.42  or  about  9  processes  per  day  for  each  clerk  employed  to 
enter  them.  The  su])ervision  of  this  clerical  force  costs  $7,710.00  ])cr  annum  ;  an 
average  of  $25.70  per  working  day. 

In  the  execution  of  these  processes  there  were  employed,  besides  the 
sheriff,  one  under  sheriff  at  $6,000  ])cr  annum;  fourteen  deputy  sheriffs  at  $2,500 
and  fourteen  assistant  deputy  sheriffs  at  $1,500,  making  a  total  in  salaries  of  $62,- 
000  per  annum,  or  an  average  of  $2.06  for  each  process  handled.  The  financial 
result  of  the  execution  of  these  processes  by  the  above  employees  was  the  col- 
lection of  a  total  of  $113,128.02  in  fees,  at  a  salary  cost  of  nearly  fifty-five  cents 
for  each  dollar  collected.     When  it  is  considered,  however,  that  of  this  total  the 


25 

sheriff  received  one-half  of  the  fees  collected,  the  salary  cost  is  almost  $1.10  for 
every  dollar  received.  The  average  number  of  processes  handled  by  each  deputy 
is  7  1-6  per  day.  Each  deputy,  however,  has  an  assistant  and  a  large  percent- 
age of  the  processes  require  only  nominal  action. 

An  examination  of  the  records  of  the  office  of  the  sheriff  of  Bronx  County 
for  1914,  showed  that  2,533  processes  were  received  and  acted  upon  during  the 
year,  for  which  the  county  received  in  fees  the  sum  of  $7,004.91.  Of  the  processes 
2,283,  or  90  per  cent,  were  executions  against  property.  The  receipt  and  en- 
try of  these  2,533  processes  cost,  in  clerical  work  alone,  the  sum  of  $12,600.00 
(the  salaries  of  eight  clerks).  The  average  number  of  processes  received  daily 
were  less  than  Sy^,  or  about  one  process  per  day  for  each  clerk  employed  to 
enter  them.  In  the  execution  of  the  2,533  processes  there  were  eni])loyed,  besides 
the  sheriff*,  one  under  sheriff*  at  $5,000  per  annum  ;  ten  deputy  sheriffs  at  $2,500 
and  five  assistant  deputy  sheriffs  at  $1,500,  a  total  of  $37,500  per  annum  in 
salaries,  which  was  nearly  $30,500  in  excess  of  the  amount  their  services  pro- 
duced in  collection  of  fees,  viz.:  $7,004.91. 

RESTORING  RECORDS  AND  RECORDING  DOCUMENTS. 

The  following  table  shows  the  budget  and  revenue  bond  allowances  for 
restoring  and  preserving  old  county  records,  all  counties,  from  1899  to  1915, 
inclusive : 


Surrogates,  and 

Commissioner  of 

Commissioner 

Register.  Xew 

County 

Records,  New 

of  Records, 

York,  Kings 

Year. 

Clerks. 

York  Sur- 
rogate. 

New  York  and 
Kings. 

and  Bronx. 

Total. 

1899 

$25,600  00 

$11,470  CO 

$99,500  00 

$20,800  00 

$157,370  00 

1900 

46.100  00 

16.560  00 

100.000  00 

50,800  00 

213.460  00 

1901 

56,100  00 

14.160  00 

100,000  00 

50.800  00 

221,060  00 

1902 

47,325  00 

11.320  00 

100.000  00 

39.100  00 

197.745  00 

1903 

49.175  00 

14.000  00 

100,000  00 

33,100  00 

196.275  00 

1904 

49.175  00 

14.000  00 

45.000  00 

30.76()  00 

138.935  00 

1.905 

61,175  00 

21.500  00 

100.000  00 

60.970  00 

243.645  00 

1906 

81,175  00 

14000  OO 

100.000  00 

52.120  OO 

247.295  00 

1907 

81,798  55 

16,310  00 

M33,000  00 

54,280  00 

285,388  55 

1908 

58,100  00 

21.380  00 

149,150  00 

44,680  00 

273.310  00 

1909 

54.500  00 

19.400  00 

139,610  00 

35.900  00 

249,410  00 

1910 

38,700  00 

11.400  00 

174.842  00 

35.500  a) 

260.442  00 

1911 

39.300  00 

11.400  00 

176,222  00 

33,160  00 

260.082  00 

1912 

58,981  00 

=50,740  00 

184.532  00 

33.160  00 

327,413  00 

1913 

43,300  00 

=^51.750  00 

200.000  00 

35.660  00 

330.710  00 

1914 

^28.200  00 

-50.550  00 

200.000  00 

35.660  00 

314,410  00 

1915 

^37.952  00 

'46,827  00 

200.000  00 

36.460  00 

321.239  00 

Total... 

$856,656  55 

$396,767  00 

$2,301,856  00 

$682,910  00 

$4,238,189  55 

It  will  be  noted  that  the  cost  was  $4,238,189.55  for  the  seventeen  years, 
or  an  average  yearly  cost  of  $249,305.27. 

Despite  the  fact  that  the  office  of  commissioner  of  records  has  existed 
in  Kings  County  since   1897,  the  register,  county  clerk  and   surrogate   of  that 

^Budget  allowances  for  years  1914  and  1915.  merged  in  general  appropriation  (Admin- 
istration)  New  York  Countv  Clerk  and  amounts  not  included. 

^The  office  of  Commissioner  of  Records.  Surrogates'  Court,  was  created  as  a  separate 
department  from  1912  (Chap.  827,  Laws  1911). 

'Office  of  Commissioner  of  Records,  New  York  Countv,  was  created  in  1907  by 
Chap.  661,  Laws  1906. 


26 

county  have  received  annual  allowances  for  the  same  work.  Similarly  in  New 
York  County,  although  a  commissioner  of  records  was  created  in  1906  the 
county  clerk  still  receives  an  appropriation  each  year  for  the  preservation  of 
old  records. 

In  November,  1913.  one  of  the  surrogates  of  New  York  County  declined 
to  certify  to  the  monthly  pay-roll  of  the  commissioner  of  records  for  the 
surrogates'  office  on  the  ground  that  he  was  not  satisfied  that  the  work  was 
being  done,  and  instructed  his  secretary  to  make  an  investigation  and  report 
on  the  condition  of  the  off'ice.  This  report  stated  that  the  oft'ice  was  doing 
good  work  in  reindexing  certain  records,  particularly  a  new  directory  index 
to  letters  of  administration,  etc.,  but  that  the  work  could  be  done  as  effectively 
with  a  reduced  number  of  employees.  It  stated  further  that  the  principal  duty 
of  the  deputy  commissioner,  who  received  a  salary  of  $4,000  per  annum,  was  to 
act  in  the  absence  of  the  commissioner,  and  that  he  displayed  a  lack  of  knowledge 
of  the  functions  of  the  bureau  and  was  unfamiliar  with  its  workings.  The 
report  recommended  the  abolition  of  the  positions  of  deputy  commissioner  at 
$4,000,  secretary  at  $2,000  and  3  laborers  at  $720  each. 

Acting  on  the  report  of  his  secretary,  the  surrogate  declined  to  certify 
to  the  pay-roll  and  it  was  transmitted  to  the  finance  department  with  the 
certification  of  the  commissioner  of  records.  The  comptroller  declined  to 
pay  the  salaries  and  mandamus  proceedings  Avere  instituted  in  the  supreme 
court  which  resulted  in  the  issuance  of  a  writ  compelling  the  comptroller  to 
pay.  In  a  memorandum  accompanying  the  writ  i\Ir.  Justice  Nathan  Bijur 
stated : 

''  It  may  well  be  that  the  comptroller  is  justified  in  his  dissatisfaction 
with  the  work  of  the  relator  as  shown  by  the  examiner's  report  submitted 
to  me.  Relator's  position  seems  also  to  be  quite  superfluous.  These,  how- 
ever, are  not  judicial  but  administrative  considerations,  relief  from  which 
must  be  sought  either  from  the  appointive  power  or  from  the  legislature. 
Relator  having  been  duly  appointed  to  a  duly  established  public  off'ice, 
and  having  been  present  regularly  to  perform  any  work  required  of  him 
by  his  superior  is  entitled  to  his  salary." 

The  same  person  is  still  deputy  commissioner  of  records  at  $4,000  per  annum, 
and  no  change  has  been  made  in  the  off'ice  force. 

One  of  the  large  items  of  expense  in  the  off'ices  of  the  register,  county  clerk, 
surrogate  and  commissioners  of  records  is  the  work  of  recording,  in  libers,  of 
original  documents  filed,  which  require  recopying  from  time  to  time  and  when- 
ever certified  copies  are  requisitioned.  An  analysis  of  the  cost  of  this  work 
shows  a  total  annual  expenditure  of  $379,820.73  aj^portioncd  as  follows: 

County  Clerk,  New  York  County ^  $43,700  00 

County  Clerk,  Bronx  County 4,000  00 

County  Clerk,  Kings  County  24.458  75 

County  Clerk,  Oueens  County   37,200  00 

County  Clerk,  Richmond  County    27  222  00 

Total  for  county  clerks $116,580  75 

'Incliulcs  an  autliorizaticjn  of  $32,(XK)  si)c-cial  rcvciuic  bonds  by  Hoard  of  Estimate  and 
Apportionir.cnt.  March  5.  1915.  for  640,000  folios  at  five  cents  per  folio  during  1915. 
(PaKc   1541.   minutes  of   Pioard.) 

■Authorization  of  special  revenue  honds  l)v  Boarrl  of  Estimate  and  Apportionment, 
June  26,  1913.     (Page  5221,  minutes  of  Board.) 


21 

Register,  New  York  County $45,460  00 

Register,  Bronx  County ^  24,425  00 

Register,  Kings  County 84,200  00 

Total  for  Register $154,085  00 

Surrogates,  New  York  County   $v33,500  00 

Surrogate,  Bronx  County 2,400  00 

Surrogate,  Kings  County 15,600  00 

Surrogate,  Queens  County 3,000  00 

Total  for  Surrogates $54,500  00 

Commissioner  of  Records,  Surrogates'  Oltice,  New  York  County  $23,400  00 

Commissioner  of  Records,  New  York  County 18,030  00 

Commissioner  of  Records,  Kings  County 13,225  00 

Total  for  Commissioners  of  Records $54,655  00 

Grand  Total S379,320  75 


While  these  large  sums  of  money  are  expended  annually  for  this  class  of 
work  little  progress  has  been  made  toward  the  introduction  of  modern  and  more 
economical  methods  in  these  offices  since  the  first  book  typewriter  was  installed 
in  the  register's  office  of  New  York  County  sixteen  years  ago. 

A  recent  inquiry  conducted  by  the  commissioner  of  accounts  at  the  request 
of  the  register  of  New  York  County,  indicated  that  a  method  for  the  accurate 
copying  of  original  documents,  having  photography  for  its  basic  principle,  would 
be  peculiarly  applicable  to  the  needs  of  the  register's  office  for  the  reason 
that  a  true  copy  would  be  produced  which  would  eliminate  the  present  cost  of 
abstracting  and  comparing,  besides  removing  the  possible  element  of  fraud 
by  forgery  or  misstatement.  Such  method  probably  would  be  valuable  also  in 
other  offices  performing  this  class  of  work  and  should  be  promptly  adopted. 

COUNTY  JAILS  FOR  CIVIL  PRISONERS. 

The  law  requires  civil  prisoners  to  be  kept  separate  from  criminal  offenders. 
The  former  are  detained  in  the  custody  of  the  sheriff  in  the  county  jail  in  each 
county.  In  Kings  County  the  county  jail  is  merely  a  portion  of  the  Brooklyn 
City  Prison  which  is  set  aside  for  the  use  of  the  sheriff'.  In  Bronx  and  Rich- 
mond counties  criminal  prisoners  serving  short  terms  are  under  the  jurisdiction 
of  the  sheriff'  and  are  confined  in  the  county  jail.  The  salary  cost  of  maintaining 
the  five  county  jails  as  indicated  in  the  budget  for  1915  is  shown  in  Table  7a 
to  be  $95,044.50,  of  which  $74,180.00  was  for  guarding  prisoners. 

The  average  number  of  prisoners  confined  in  the  county  jail  daily  during 
1914  was:  New  York,  20;  Kings,  15;  Bronx,  85:  Queens,  2:  Richmond.  45:  a 
total  of  167.     In  Bronx  and  Richmond  Counties  the  daily  average  of  prisoners 

^Includes  authorizations  of  $13,025  special  revenue  bonds  bv  Board  of  Estimate  and 
Apportionment.  January  6.  1914,  May  28.  1914,  and  December  23.  1914.  (Pages  223,  3475 
and  9565,  minutes  of  Board.) 


28 

arrested  by  civil  process  by  the  sherift'  is  two  per  diem.  The  sheritts  of  these 
counties,  however,  have  the  custody  of  witnesses  detained  by  the  state  and  of 
prisoners  awaiting  criminal  trial  or  sentence  or  serving  short  terms  for  criminal 
offenses.  On  this  basis  the  average  daily  cost  of  guarding  prisoners  per  1915 
budget  would  be  per  prisoner:  Xew  York,  $3.49;  Kings,  $3.21;  Queens,  $5.20; 
Bronx,  64  cents,  and  Richmond,  45  cents. 

In  contrast  with  the  preceding,  the  records  in  the  department  of  correction 
show  that  the  cost  of  guarding  prisoners  solely  is  as  follows:  workhouse,  one 
keeper  to  13.5  male  prisoners  at  a  cost  of  about  sixteen  cents  per  prisoner  per 
diem,  one  matron  or  orderly  to  24  female  prisoners  at  a  cost  of  less  than  seven 
cents  per  prisoner  per  diem;  penitentiary,  one  keeper  to  17  male  prisoners  at  less 
than  sixteen  cents  per  prisoner  per  diem,  one  matron  or  orderly  to  3  2/3  female 
prisoners  at  thirty-seven  cents  per  prisoner  per  diem. 

It  will  be  noted  that  cleaners  are  paid  $900  per  annum  in  Xew  York,  $750 
in  Kings  and  $600  in  Bronx  County  jails,  while  $360  per  annum  is  the  standard 
lor  this  work  in  other  branches  of  the  city's  service. 

The  commissioners  of  accounts  have  heretofore  reported  on  extravagance 
in  the  conduct  of  the  county  jails  and  recommended  that  they  be  abolished  and 
the  custody  of  prisoners  be  turned  over  to  the  department  of  correction.  In  a 
report  to  the  mayor  under  date  of  April  28,  1913,  attention  was  called  to  the 
fact  that  at  the  New  York  County  jail  two  engineers  were  employed  at  $4.50 
per  diem  each,  their  duties  being  confined  to  the  care  of  a  small  heating  boiler 
carrying  not  over  ten  pounds  of  steam  during  the  winter  months,  and  of  a  kitchen 
range  and  a  water  heater  during  the  summer  months.  The  same  situation  exists 
to-day  except  that  one  of  the  engineers  is  employed  only  for  200  days. 

DIVERSION  OF  FEES  TO  PRIVATE  CORPORATIONS. 

The  office  of  register  in  the  various  counties  has  not  been  reorganized  to 
keep  pace  with  the  rapid  growth  of  real  estate  interests.  This  has  enabled  private 
persons  alive  to  the  possibilities  of  the  situation  to  organize  corporations  known 
as  title  companies  which  in  a  short  time  have  absorbed  the  functions  of  the 
register  in  the  matter  of  searching  titles  to  real  property.  These  companies 
utilized  the  information  contained  in  the  county  records  as  the  basis  of  their 
plants  and,  by  applying  modern  methods  and  a  competent  force  of  experts,  soon 
made  the  plants  more  efficient  than  the  county  organization.  The  consequence 
has  been  that  the  title  companies  have  collected  large  sums  in  fees  while  the 
county  has  received  comparatively  nothing.  Measures  designed  to  correct  this 
condition  have  failed  to  obtain  legislative  enactment. 

An  attempt  to  simplify  the  registration  of  title  to  real  estate  in  the  city,  by 
the  introduction  of  the  Australian  system,  was  made  by  the  enactment  of  what  is 
known  as  the  Torrens  law.  The  act,  however,  was  encumbered  with  such 
comi)lex  conditions  that  the  expense  of  registering  a  title  made  its  use  pro- 
hibitive.i  Upon  the  enactment  of  this  law  bureaus  known  as  Land  Title  Regis- 
tration Bureaus  were  organized  in  the  oft'ices  of  the  registers  of  New  York  and 
Kings  Counties  and  in  the  county  clerks'  offices  of  Queens  and  Richmond.  A 
similar  bureau  was  jjrovick'd  for  in  the  l>ronx  County  Register's  office  in  1914. 


L.  1908.  C.  444,  now  st-ctions  370  and  435  <.f  Rral  I'ropcrty  Law. 


29 

But  the  law  has  remained  practically  a  '*  dead  letter."  In  the  register's 
office  of  New  York  County  the  hoard  of  estimate  and  apportionment  provided 
for  a  diagram  and  filing  clerk  at  $1,400  and  a  general  clerk  and  searcher  at  $1,400, 
but  there  have  been  only  thirteen  titles  presented  for  registration  since  the  law 
was  enacted,  five  of  which  had  to  be  withdrawn  because  of  defects  in  the  appli- 
cation. 

The  receipts  in  New  York  County  for  1915  were  $11.50,  and  in  1914,  $16. 
In  Bronx  County  the  register  has  received  but  one  application  since  he  took 
office.  In  Kings  County  in  1914  there  was  but  one  notice  of  pendency  of  action 
and  three  judgments  of  registrations  upon  which  three  certificates  were  issued. 

The  Real  Estate  Board  recently  made  an  investigation  to  determine  whether 
the  law  could  be  made  a  practical  working  instrument.  The  investigators  con- 
cluded that  the  Torrens  law  was  sound  in  principle  and  ought  to  be  fostered  and 
used  to  a  greater  extent.  The  amendments  suggested  by  them  would  shorten 
the  pleadings,  avoid  duplication  of  papers  and  lessen  expense  of  guardians; 
make  more  definite  the  manipulation  of  registered  title,  provide  for  administration 
of  the  law  by  judges  specially  chosen  for  that  purpose ;  and  give  those  judges  and 
the  Appellate  Division  (which  appoints  two  official  examiners  of  title),  more 
supervision.  The  investigators  also  recommended  utilizing  locality  indexes  in 
the  register's  office,  where  such  indexes  have  been  completed,  and  authorizing 
deputy  registers  to  act  as  official  examiners  of  title. 

NECESSITY   FOR  REORGANIZATION. 

The  foregoing  facts  constitute  a  sufffcient  indictment  of  the  present  system  of 
county  government.  A  form  of  government  that  lends  itself  so  readily  to  abuse 
is  fundamentally  unsuited  to  the  needs  of  the  community.  County  government 
was  first  devised  for  rural  districts.  It  originated  in  mediaeval  England  and  was 
carried  to  this  country  in  the  days  before  the  existence  of  large  urban  areas.  It 
has  not  been  adaptable  to  the  new  conditions.  In  particular,  the  development 
of  the  greater  city  of  New  York,  with  its  complete  scheme  of  municipal  gov- 
ernment, has  demonstrated  the  absurdity  of  continuing  separate  and  distinct' 
county  organizations,  relics  of  a  bygone  day.  Nevertheless,  the  old  scheme  has 
persisted  and  the  result  has  been  multiplication  of  elective  officers,  baffling  to  the 
elector;  obscurity  of  many  county  offices,  and  the  natural  consequences  thereof. 

A  thorough  reorganization  of  county  government  is  imperative  if  the  ma- 
chinery of  administration  is  to  be  adapted  to  modern  needs. 

Already  a  degree  of  centralization  has  been  effected  in  that  there  has  been  a 
merger  of  the  five  county  treasurers  with  a  central  municipal  officer,  the  city  cham- 
Ijerlain,  and  a  transfer  of  the  powers  of  the  five  sets  of  county  supervisors  to  a 
central  municipal  legislative  body,  the  board  of  aldermen. i  The  feasibility  of 
further  centralization  at  once  suggests  itself. 

It  may  be  urged,  however,  against  any  further  consolidation  of  county  gov- 
ernment within  New  York  City  and  against  any  further  merger  with  the  munic- 
ipal government : 

(1)      That  the  antiquity  of  our  present  county  institutions  is  proof  of 
their  desirability. 


^See  also  p.  30. 


30 

(2)  That  county  officials  perform  so-called  "  state  functions,"  the 
exercise  of  which  should  be  entirely  separate  from  municipal  activities. 

(3)  That  offices  located  in  each  county  are  necessary  for  the  con- 
venience of  the  public. 

(4)  That  centralization  of  county  functions  would  unduly  impair 
local  autonomy. 

(5)  That  centralization  would  not  reduce  expenses  because  the  func- 
tions now  performed  within  each  county  must  continue  to  be  so  per- 
formed, either  by  the  present  officers  or  by  high  salaried  deputies  under 
a  higher  salaried  central  officer. 

These  arguments  are  considered  in  order: 

1.  Antiquity  of  county  institutions  no  reason  for  their  retention: 

That  mediaeval  institutions  have  persisted  through  habit  and  inertia  will  not 
be  regarded  by  thoughtful  persons  as  proof  of  their  necessity  at  present.  For 
many  years  the  coroners'  office  in  this  city  persisted  in  spite  of  its  obvious  super- 
fluity and  its  maladministration.  Now  that  provision  has  been  made  for  its 
abolition  few  will  contend  that  it  had  anything  but  antiquity  to  recommend  it. 

2.  No  necessity  for  separation  of  county  and  municipal  functions: 

No  argument  can  be  advanced  in  favor  of  the  retention  of  live  county  clerks 
or  five  district  attorneys  that  will  not  tend  to  prove  with  equal  force  that  there 
should  be  five  county  treasurers  and  five  boards  of  county  supervisors.  Many 
duties  are  already  discharged  by  the  central  municipal  government,  each  of  which 
in  "  up-state  "  counties  devolves  upon  a  separate  county  officer.  In  ])lace  of 
county  superintendents  of  the  poor  there  is  here  the  municipal  department  of 
public  charities.  The  finance  department  of  the  city  performs  the  work  else- 
where done  by  county  comptrollers.  County  sealers  of  weights  and  measures  are 
replaced  by  the  mayor's  bureau  of  weights  and  measures.  The  care  of  criminal 
prisoners  has  largely  been  transferred  from  the  sheriff  to  the  municipal  depart- 
ment of  correction.  There  is  a  single  board  of  elections  for  tlie  city  of  New 
York  in  place  of  a  commisisoner  of  elections  for  each  county.  In  each  borough  the 
bureau  of  public  buildings  and  offices,  and  not  the  sheriff,  is  the  custodian  of 
county  buildings.  The  borough  bureaus  of  highways  take  the  place  of  county 
superintendents  of  highways.  Many  counties  have  a  county  attorney.  In  New 
York  City  the  corporation  counsel  represents  county  officials  in  civil  matters 
where  they  are  not  sui)i)lie(l  with  special  counsel.  Finally,  a  chief  medical 
examiner  for  the  entire  city  is  to  perform  the  work  which  in  other  counties  is 
entrusted  to  the  coroners.  There  appears  to  be  no  reason  why  this  reorganization 
according  to  modern  conditions  slujuld  not  be  made  com])lete. 

3.  Centralicatioji  would  not  interfere  7citli  convenience  to  the  public: 

In  order  to  determine  what  ])ro])()rtion  of  the  ])ersons  or  corporations  doing 
business  with  the  outlying  counties  of  l?)r()nx,  Oueens  and  Richmond  are  persons 
or  corporations  having  offices  in  New  York  C  ounty,  a  random  test  was  made  in 
the  offices  of  the  sheriff,  county  clerk  and  register  of  IJronx,  Queens  and  Rich- 
mond counties.  The  results  of  this  test  showed  that  on  March  1,  1915,  there 
were  eight  ])ai)ers  filed  in  the  sheriff's  office,  Bronx  County,  six  by  i)ersons  whose 
addresses  were  in  lower  Manliattan.     (  )n  Marcli   1   and  2.  1915,  there  were  two 


31 

papers  filed  in  the  office  of  the  sheriff  of  Richmond  County,  both  by  persons 
whose  offices  were  in  lower  Manhattan.  On  March  1  and  2,  1915,  in  the  office 
of  the  sheriff  of  Queens  County,  there  were  eighteen  papers  filed — ten  from 
Manhattan  addresses,  four  from  Ouecns,  three  from  Kings,  and  one  from  out- 
side the  city. 

In  the  register's  office,  Bronx  County,  on  March  1,  1915,  72  papers  were 
tiled — 46  from  Manhattan  and  26  from  Bronx  addresses.  In  the  register  divi* 
sion  of  the  county  clerk's  office  of  Queens  County  on  March  1  and  3,  1915, 
186  papers  were  filed — 142  from  Queens  County  addresses,  17  from  Kings  County, 
26  from  New  York  County  addresses,  and  one  from  outside  the  city.  Of  the 
142  filed  with  Queens  addresses,  however,  69  were  from  title  companies  whose 
main  offices  are  in  lower  Manhattan.     - 

In  the  county  clerk's  office  of  Queens  County  on  March  1  and  2,  1915,  62 
papers  were  filed — 32  from  Queens  County  addresses,  11  from  Kings  County 
and  19  from  New  York  County  addresses.  In  the  Richmond  county  clerk's  office 
on  February  27,  March  1  and  2,  1915,  31  papers  were  filed — 16  from  Richmond 
addresses,  11  from  New  York  County  addresses,  and  4  from  outside  the  city. 
In  the  Bronx  county  clerk's  office,  on  March  8  and  9,  1915,  79  papers  were  filed, 
of  which  71  were  from  New  York  County  addresses,  6  from  Bronx  County  and 
2  from  Kings  County  addresses. 

The  following  table  summarizes  the  results  of  the  test: 


Number  of 
Papers  Filed,     Per  Cent. 


From  New  York  County  addresses, 

From    home   county   addresses 

From  elsewhere    


260 

57 

157 

34 

41 

9 

458 


100 


With  present  transit  facilities,  all  parts  of  Kings  County  are  almost  as 
accessible  to  lower  Manhattan  as  to  the  Brooklyn  borough  hall,  and  the  improved 
transit  facilities  now  under  construction  will  unite  all  boroughs  to  a  still  greater 
extent.  In  cases  where  it  may  be  found  advisable  to  have  local  offices  in  various 
portions  of  the  city,  however,  branch  offices  will  adequately  serve  the  needs  of  the 
public  and  will  be  less  costly  than  the  present  system,  because  in  most  cases 
it  will  be  unnecessary  to  continue  plant  duplication. 

4.  Centralization  zvoitld  not  nnduly  impair  local  autonoiny: 

While  it  is  true  that  the  more  government  is  localized  the  closer  it  is  brought 
to  the  people,  local  autonomy  would  appear  to  be  sufficiently  preserved  by  the 
division  of  the  city  into  boroughs  and  aldermanic  districts  and  the  existence  of 
local  school  boards  and  boards  of  public  improvements.  There  is  no  argument 
which  can  be  advanced  against  consolidating  the  counties  which  would  not  have 
been  equally  potent  if  opposed  to  the  consolidation  of  municipalities  to  form 
Greater  New  York.  There  is  no  sound  reason  for  arresting  the  process  of  cen- 
tralization and  maintaining  obsolete  county  lines. 

5.  Centralization  will  reduce  expenses: 

Any  argument  that  centralization  will  not  result  in  a  material  economy  is 
conclusively  disproved  by  a  study  of  the  possible  consolidations  described  in  detail 
in  a  later  section  of  this  report. 


Z2 

As  a  practical  matter,  however,  the  greatest  difficulty  in  the  way  of  the  cen- 
tralization of  county  government  within  the  city  of  New  York  arises  from  the 
fact  that  county  offices  have  long  been  the  favorite  field  of  partisan  politics.  With 
few  exceptions,  the  elective  offices  of  sheriff,  county  clerk  and  register  have  for 
years  been  considered  legitimate  rewards  for  party  henchmen,  and  in  the  appoint- 
ment of  subordinates  patronage  has  been  distributed  among  the  ''  deserving." 
Therefore,  any  plan  tending  to  eliminate  county  sinecures  may  be  expected  to 
meet  with  a  storm  of  protest. 


CONSOLIDATION  AND  MERGER. 

If,  then,  no  good  reasons  can  be  urged  against  the  further  centralization  of 
county  government  with  the  City  of  New  York,  how^  far  shall  it  be  carried? 
Substantial  progress  would  be  achieved  by  the  mere  combination  of  all  similar 
county  offices  in  the  five  counties.  Such  a  plan  would  reduce  the  number  of 
county  departments  from  forty  to  nine  and  would  effect  a  saving  in  annual  salary 
cost  alone  of  over  a  million  dollars.  An  indication  of  what  might  be  accom- 
plished under  such  a  scheme  of  consolidation  is  shown,  item  by  item,  with  refer- 
ence to  each  of  the  county  offices,  pages  33  to  40. 

Shall  the  reorganization  of  county  government  in  the  city  of  New  York 
stop  with  the  mere  consolidation  of  like  county  departments?  Much  as  that 
would  accomplish,  it  would  be  but  a  portion  of  the  improvement  attainable  by 
merging  county  government  with  municipal  government  so  far  as  that  is 
practicable.  ^ 

Such  a  form  of  municipal  organization  is  not  without  precedent.  The 
boundaries  of  the  old  city  and  county  of  New  York  were  identical  from 
1686  to  1897,  and  during  all  that  time,  except  from  1857  to  1874,  the  government 
of  the  city  and  county  of  New  York  was  practically  a  unit.  The  board  of 
aldermen  was  also  the  board  of  supervisors  ;  the  chamberlain  was  the  county 
treasurer;  the  court  of  general  sessions  was  held  by  the  recorder  and  the  city 
judge;  the  sheriff  of  New  York  County  was  also  the  sheriff  of  New  York  City, 
and  the  public  administrator  was  distinctly  a  city  officer.^  Indeed,  by  chapter 
304  of  the  Laws  of  1874  it  was  expressly  declared  that  "  the  county  of  New  York 
and  the  corporation  known  by  the  name  of  the  '  mayor,  aldermen  and  commonalty 
of  the  city  of  New  York  '  shall  be  one  body  corporate  and  politic  by  the  said 
name;  *  *  *  {qj-  j^^h  j)ur]K)ses  the  local  administration  and  government  of 
the  city  and  county  of  New  York  shall  1)C  in  and  be  performed  by  the  one  cor- 
I>oration  aforesaid."  Thereby  complete  consolidation  was  effected  so  far  as  the 
constitution  would  admit,  it  being  provided  that  nothing  in  the  act  should  be 
construed  to  affect  the  election  or  appointment  of  county  officers  whose  election  or 
api)ointment  was  provided  for  by  the  constitution,  or  any  other  purposes  for 
which  the  city  and  county  of  New  York  was  recognized  in  the  constitution  as  one 
of  tlic  countit's  of  tlie  state.-  11ie  city  of  Brooklyn  became  coterminous  with  the 
county  of  Kings  in  1894  and  the  following  year  it  was  similarly  provided  that 
"the  county  of  Kings  and  the  city  of  Brooklyn  shall  be  one  body  cor])orate  and 


*'*Tlie   relation    of    rouiitv    to    city    Kovcnitiu'iit    in    New    York"   by    Arthur   Ludington 
Prooeedinis's  of  Am.  Polit.  Sc.   .\ss'n,  \'ol.  8,  p.  76   (1911). 
*Laws   1874,   Chap.   305. 


33 

politic  by  the  name  of  the  '  City  of  Brooklyn  ';  the  local  administration  and  gov- 
ernment of  the  city  of  Brooklyn  and  of  the  county  of  Kings  shall  be  vested  in 
and  be  performed  by  the  one  corporation  aforesaid     *     *     *  "i. 

Under  the  present  charter  of  the  city  and  county  of  San  Francisco,  the  city 
and  county  constitute  one  municipal  corporation  and  all  officers  thereof  are  city 
and  county  officers — the  sheriff,  the  county  clerk,  the  district  attorney  and  the 
public  administrator  being  as  much  city  officers  as  are  the  mayor,  the  city  at- 
torney, the  auditor  and  the  treasurer.  This  plan  of  organization  went  into  effect 
in  1900  and  the  city  attorney  of  the  city  and  county  of  San  Francisco  declares 
that  "a  consolidated  city  and  county  government  has  commended  itself  to  San 
Francisco  as  a  simple  and  an  efficient  form  of  municipality.     '^     *     *  "- 

In  the  case  of  New  York,  however,  each  of  27  elective  county  officers  is  a 
law  unto  himself.  No  central  authority  exercises  supervision  over  his  acts  or 
enforces  desirable  co-operation.  Responsibility  is  so  divided  that  it  rests  nowhere. 
Chosen  on  a  long  ballot,  the  voter  finds  it  impossible  to  pass  intelligently  on  the 
qualifications  of  the  candidates  for  all  of  these  offices.  Though  the  constitution 
confers  the  power  of  removal  upon  the  governor,  this  power  constitutes  no  real 
control.  The  abuses  which  are  known  to  have  developed  in  the  coroners'  offices 
are  the  natural  result  of  the  conditions  fostered  by  division  of  responsibility  and 
lack  of  supervision  under  a  system  of  perfunctory  popular  election  on  a  long 
ballot. 

With  the  possible  exception  of  the  district  attorney,  the  functions  performed 
by  these  elective  officers  are  purely  ministerial  and  involve  no  matters  of  public 
policy.  Consequently  there  is  no  more  reason  for  choosing  them  by  popular 
election  than  for  using  that  method  for  selecting  the  heads  of  administrative  city 
departments.  The  administrative  county  offices  should  be  combined,  as  far  as 
practicable,  with  the  city  government  and  the  officers  in  charge  placed  under  the 
mayor,  thus  obtaining  all  the  advantages  of  the  short  ballot  and  at  the  same  time 
centralizing  responsibility  and  co-ordinating  service.  The  transfer  of  direct 
control  from  the  legislature  to  the  central  city  administration  should  also  in  a 
large  measure  mitigate  the  present  evils  of  mandatory  legislation.  A  possible 
plan  for  merger  is  suggested  hereafter.  The  probable  economies  resulting  from 
mere  consolidation,  as  show^n  in  Tables  8  to  17,  are  summarized  below,  and  are 
now  considered : 

Present    total    cost    for    per-  Present     number     of     officials     and 

sonal     service     in     the     40  employees    1.921 

county    departments $3,766.649  96 

Possible     consolidation      (see  Number   under    suggested   consolida- 

Table  8)  shows  a  total  cost  tion    1,472 

of    2,623,485  00 


Saving    $1,143,164  96  Reduction    449 

1.     County  Clerk: 

Present    total    cost    for    per-  Present     number     of     officials     and 

sonal    service    in    the    five  employees    308 

county  clerks'  offices $495,830  75 

Possible     consolidation      out-  Number    of    employees    under    sug- 

lined     in     Table    9     shows  gested  consolidation   119 

total  cost  of 291,590  00 


Saving    $204,240  75  Reduction    189 


'Laws  1895,  Chap.  954. 

""Consolidated   city   and   county  government   of    San   Francisco,"   bv    Percv   W   Long; 
Proceedings  of  Amer.  Pol.  Sc.  Ass'n.  \^ol.  8,  p.  121    (1911). 


34 

In  place  of  the  five  county  clerks  now  employed  at  a  combined  salary  of 
$50,000,  one  county  clerk  is  proposed  at  a  salary  of  $12,000,  with  one  deputy 
county  clerk  for  each  of  the  five  divisions  (one  for  each  county)  to  be  established 
in  the  proposed  consolidated  office.  For  these  deputies,  salaries  are  suggested 
amounting  to  a  total  not  exceeding  the  aggregate  salaries  received  by  the  present 
five  deputies.  In  place  of  the  present  four  assistant  deputy  county  clerks  at  a 
total  cost  of  $12,500,  three  are  suggested  at  salaries  aggregating  $8,500.  A  chief 
clerk  for  each  division  is  retained  with  an  adjustment  of  salaries  affecting  a  saving 
of  $500.  For  the  four  secretaries  now  employed  at  an  aggregate  salary  of  $8,000, 
one  only  should  be  required  at  a  salary  of  $3,000.  At  present  the  financial  branch 
of  the  various  county  clerks'  offices  is  handled  by  two  cashiers,  one  financial 
clerk  and  one  deputy  financial  clerk,  whose  total  salaries  amount  to  $9,000.  In  one 
central  office  this  branch  could  readily  and  efficiently  be  administered  by  one 
cashier,  one  assistant  cashier,  and  one  financial  clerk,  at  a  total  salary  cost  of 
$6,100. 

At  present  there  are  employed  four  counsel  to  the  county  clerks,  two  law 
clerks,  and  one  assistant  law  clerk,  at  salaries  aggregating  $23,000.  To  advise 
the  county  clerk  under  consolidation  one  counsel,  one  assistant  counsel  and  one 
law  clerk  at  salaries  aggregating  $10,000  are  suggested  as  sufficient  (But  see 
p.  41. 

In  the  place  of  two  bookkeepers  one  is  suggested  for  the  consolidated  office, 
the  reduction  being  based,  as  in  the  financial  branch,  upon  the  volume  of  work 
now  performed  in  the  office  of  the  county  clerk  of  New  York  County.  Upon 
the  same  basis  the  following  further  reductions  are  suggested : 

Prom  To 

Equity  Clerks  6  1    (and  3  assistants ) 

Certificate  Clerks  2  (and   1  assistant)        1    (and  1   assistant) 

Comparers 8  5 

Docket  Clerks 9  5 

Mechanics'  Lien  Clerks 2  1 

Seachers 7  5 

The  diversity  of  titles  among  the  clerks  is  removed  by  substituting  the  title 
of  "  general  clerk,"  in  line  with  the  policy  already  adopted  by  the  New  York 
County  Clerk. 

A  force  of  60  clerks  engaged  in  reindcxing  judgment  dockets  and  restoring 
old  and  mutilated  records  has  been  transferred  from  the  various  county  clerks' 
offices  to  a  consolidated  commissioner  of  records  office  (See  Table  12).  If, 
however,  the  offices  of  commissioners  of  records  are  abolished  (See  P,  40)  at 
least  a  portion  of  this  force  would  probably  have  to  be  retained  in  the  consolidated 
county  clerk's  office. 

It  is  suggested  that  the  notarial  clerks  in  the  Kings,  Queens  and  Bronx 
offices  be  transferred  to  the  consolidated  office  at  their  present  salaries.  Each 
county  clerk  acts  as  collecting  agent  for  the  State  for  notarial  fees.  The  New 
York  County  clerk  i)ays  the  salaries  of  the  notarial  clerks  in  his  office  from  the 
fees  collected,  and  pays  the  balance  into  the  state  treasury. ^  In  Kings,  Queens 
and  Bronx  Counties  the  notarial  clerks'  salaries  arc  paid  by  the  city  and  in  return 
the  city  receives  a  portion  of  the  fees.- 

'Kxecutivc   Law.  Sec.   104. 

'Ilxccutive    Law,    Sec.    104.    aiul    Laws    1911.    Ch.    641.      There    is    no   notarial    clerk    in 
Richmond   County. 


35 

It  is  similarly  suggested  that  the  two  naturalization  clerks  employed  in  the 
Queens  office  be  transferred  to  the  consolidated  oft'ice  at  their  present  salaries. 
The  expenses  of  the  naturalization  bureaus  in  other  counties  are  paid  out  of  the 
fees  collected,  the  county  clerk  retaining  one-half  of  the  fees,  and  paying  the 
other  half  into  the  federal  treasury. i  The  Queens  county  clerk  pays  his  portion 
of  the  fees  to  the  city,  and  receives  an  appropriation  for  naturalization  clerks 
in  return.2 

Eventually,  a  uniform  plan  should  be  adopted  as  to  the  method  of  paying 
notarial  and  naturalization  clerks  in  the  consolidated  office,  either  all  from  the 
fees  or  all  from  appropriation,  and  thereafter  a  readjustment  of  the  number  and 
salaries  of  such  clerks  might  be  made. 

In  the  counties  of  Queens  and  Richmond,  where  the  dual  function  of  county 
clerk  and  register  is  performed  by  one  official,  a  complement  of  general  clerks 
sufficient  to  perform  the  duties  of  the  register  is  provided  for  in  the  suggested 
consolidation  of  the  register's  office. 

It  has  been  kept  in  mind  that  the  miscellaneous  functions  of  the  county  clerk 
require  an  adequate  staff  of  general  clerks  which  could  be  assigned  to  all  classes 
of  work,  much  of  which  is  seasonal.  The  present  staffs  of  general  clerks  in  all 
counties  have,  therefore,  been  left  intact,  on  the  assumption  that,  in  the  beginning 
at  least,  the  head  of  the  consolidated  office  will  require  much  general  clerical 
service  and  could  utilize  this  force  for  various  classes  of  work  until  experience 
had  developed  the  men  best  fitted  for  certain  service.  Adjustment  of  organization 
could  then  be  made  by  a  process  of  elimination  or  reassignment. 

2.     District  Attorney: 

Present  total  cost  for  personal  Present  number  of  employees 312 

service    in    the    five    district 

attorneys'  offices ^725,745  00 

Present   consolidation   outlined                                    The  number  of  employees'  under  con- 
in  Table  10  shows  total  cost  solidation    294 

of    658,525  00 


Savino-    $67,220  00  Reduction    18 

The  suggested  reorganization  unites  the  five  offices  into  a  single  office  under 
the  jurisdiction  of  one  district  attorney,  at  $15,000,  eliminating  four  district 
attorneys  at  a  saving  in  salaries  of  $33,000. 

In  order  that  the  efficiency  of  this  department  may  not  be  impaired  no 
reduction  is  suggested  in  the  present  number  of  assistants  to  the  district  attorneys. 
Instead  of  two  secretaries  one  is  suggested.  Consolidation  would  make  possible 
the  elimination  of  four  chief  clerks.  To  the  one  chief  clerk  retained  are  allotted 
two  deputy  chief  clerks  and  one  auditor,  all  at  present  salaries,  with  a  saving  of 
$9,550.  No  reduction  is  made  in  the  number  of  general  clerks,  stenographers, 
county  detectives,  process  servers,  office  boys,  or  employees  of  the  "  Bureau  of 
Special  Sessions's  Information."  The  number  of  messengers  is,  however,  reduced 
from  ten  to  five  and  of  telephone  operators  from  four  to  two. 


'U.  S.  Stat.  1906,  C.  3592,  Sec.  13. 
'L.  1912,  Ch.  540. 


36 


3.     Register. 

Present  total  cost  for  personal 
service  in  the  three  registers' 
offices $602,590  00 

Possible  consolidation  out- 
lined in  Table  11  shows  total 
cost  of   502.190  00 


Present  number  of  employees 429 


Number    of    employees    under    sug- 
gested consolidation  2i77 


Saving    $100,400  00 


Reduction 


52 


The  suggested  reorganization  creates  a  single  office  under  one  register,  with 
a  deputy  in  each  of  the  five  counties.  In  Queens  and  Richmond  the  deputies  would 
take  over  the  work  of  the.  present  register  divisions  of  the  county  clerks'  offices. 
Under  this  plan  the  register  is  allowed  a  law  clerk  at  $3,000  in  place  of  the  counsel 
at  $3,500  now  in  the  Kings  County  office  (see  also  page  41)  ;  the  number  of 
chief  clerks  is  reduced  from  4  to  1,  with  a  saving  in  salaries  of  $8,200  per  annum ; 
three  secretaries  at  a  salary  cost  of  $6,000  per  annum  are  replaced  by  one  at 
$2,000. 

Instead  of  two  chiefs  and  two  assistant  chiefs,  with  an  aggregate  salary  of 
$8,800,  one  chief  at  $2,500  and  one  assistant  at  $1,800  are  provided  to  supervise 
the  work  of  block  indexing.  The  work  of  the  executive  clerk,  two  chief  index 
clerks  and  five  satisfaction  clerks  is  taken  over  by  a  bookkeeper,  one  index  clerk 
and  three  satisfaction  clerks,  with  a  resulting  economy  of  $9,100.  Furthermore, 
the  number  of  custodians  is  reduced  from  26  to  20,  the  messengers  from  6  to  1, 
the  telephone  operators  from  2  to  1,  with  a  proportionate  reduction  in  salary  cost. 
The  existing  force  of  124  clerks,  95  copyists  and  78  employees  in  the  reindexing 
division  is  retained,  though  it  may  be  anticipated  that  experience  will  prove  that 
the  number  can  be  substantially  reduced. 

The  force  of  27  employees  engaged  in  preserving  public  records  is  trans- 
ferred to  the  consolidated  office  of  commissioner  of  records.  If,  however,  the 
office  of  commissioner  of  records  is  abolished  (see  page  40),  a  part  of  this  force 
at  least  would  probably  have  to  be  retained  in  the  consolidated  register's  office. 


4.     Commissioner  of  Records: 

Present  total  cost  for  personal  Present   number   of   employees 247 

service   in    the    three   offices 

of   commissioner   of   records 

and  for  similar  work  in  the 

three    registers'    offices    and 

four  county  clerks'  offices^  ,  $361,738  75 
Possible      consolidation      out-  Number    of    employees    under    sug- 

lined     in     Table     12     shows  gested  consolidation  120 

total  cost  of 152.820  00 

Saving    $208,918  75  Reduction \27 

1  he  following  table  sliows  the  ])rescnt  wasteful  organization  under  which  the 
])urclv  routine  work  of  ])reserving  and   restoring  county  records   is  performed: 

'Richmond    County   Clerk   had   a   rcvcmu'   bond   allowance    for   this   work   in    1913.     The 
fund  is  now  nearly  exhausted. 


37 


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38 

This  table  makes  clear  the  top-heavy  organization  in  the  three  offices  of  the 
commissioners  of  records.  Executive  sinecures  have  been  created  until  the  num- 
ber of  supervisory  positions  is  out  of  all  proportion  to  the  character  of  the 
service  required.  Furthermore,  positions  created  for  temporary  work  have  been 
continued  as  permanent  jobs. 

Under  the  suggested  consolidation  (see  also  page  40),  a  commissioner  of 
records  at  $5,000  (appointed  by  the  mayor),  a  deputy  at  $3,000,  a  chief  clerk 
and  assistant  chief  clerk  at  $2,500  and  $1,500,  respectively,  replace  three  com- 
missioners whose  salaries  aggregate  $17,500,  three  deputies  at  $4,000  each,  three 
superintendents  with  salaries  aggregating  $10,000,  two  assistant  superintendents 
costing  $5,800,  and  six  lesser  executive  officials  costing  $12,100.  In  other  words, 
four  officials  whose  salaries  aggregate  $12,000  are  to  do  the  work  for  which 
seventeen  positions  are  now  occupied  at  an  annual  salary  cost  of  $57,400.  Similar 
economies  are  effected  with  reference  to  other  positions,  as  shown  in  detail  by 
Table  12. 

5.     Conunissioner  of  Jurors: 

Present  total  cost  for  personal  Present  number  of  employees 76 

services  in  the  five  offices  of 

Commissioner  of  Jurors....    $130,770  00 
Possible       consolidation       out  Number    of    employees    under    sug- 

lined  in  Table  13  shows  total  gested  consolidation   64 

cost  of   97,080  00 


Saving    $33,690  00  Reduction     12 

The  suggested  consolidation  substitutes  one  commissioner  and  live  depu- 
ties, at  aggregate  salaries  of  $17,500,  for  live  commissioners,  and  live  assistant 
commissioners,  whose  annual  salaries  total  $35,700.  Two  chief  clerks  and  three 
secretaries,  costing  $12,600,  are  replaced  by  one  chief  clerk  and  one  secretary  at 
a  salary  cost  of  $4,500.  The  present  clerical  force  is  retained  intact,  and  the  staff 
of  jury  notice  servers  is  continued  substantially  unchanged. 

6.     Public  Administrator: 

Present  total  cost  for  personal  Present   number   of   employees 21 

service  in  the  five  offices  of 

public    administrator $44,370  00 

Possible      consolidation      out-  Number    of    employees    under    sug- 

lined     in     Table     14     shows  gested  consolidation   11 

total   cost   of 20,200  00 


Saving    $24,170  00  Reduction    10 

A  single  office  of  public  administrator,  with  one  public  administrator  at 
$7,500  (appointed  by  the  mayor)  is  suggested  in  place  of  the  existing  five  offices 
with  five  public  administrators  and  one  assistant  public  administrator,  whose 
total  salaries  amount  to  $25,500.  Other  economies  are  specifically  suggested  in 
the  proposed  consolidation,  while  still  further  savings  would  result  from  the 
merger  of  this  office  with  that  of  the  city  chamberlain,  recommended  on  page  42. 

7.     Sheriff: 

Present  total  cost  for  personal  •  Present   numl)cr   of   employees 240 

service    (including    share   of 

fees    retained    by    the    New 

York  County  sheriff)   in  the 

five    sheriffs'    offices $454.018  21 

Possible      consolidation       out-  Number    of    employees    under    sug- 

lined     in     Table     15     shows  gested    consolidation 143 

total   cost    cf 216.510  00 


Saving    $237,508  21  Reduction    97 


39 

The  proposed  plan  (See  also  p.  42)  has  two  parts:  (1)  The  consolidation  of 
the  five  existing  sheriffs  into  one  office,  and  (2)  the  placing  of  the  office  on  a 
strictly  salary  basis. 

The  suggested  consolidation  provides  for  one  sheriff  at  $12,000  and  five  under 
sheriff's  whose  salaries  aggregate  $19,000,  instead  of  five  sheriff's,  whose  salaries 
total  $53,000,  and  five  under  sheriffs,  costing  $21,000.  Thirty  deputy  sheriffs 
and  twenty-five  assistant  deputy  sheriff's,  costing  $79,500,  are  substituted  for  thirty- 
nine  deputy  sheriffs  and  thirty-eight  assistant  deputy  sheriffs,  costing  $133,600. 
Four  chief  clerks  and  an  assistant  chief  clerk,  costing  $11,000,  are  replaced  by 
one  chief  clerk  and  one  assistant  chief  clerk,  costing  $5,000.  Five  counsel  and 
one  assistant,  costing  $21,000,  are  replaced  by  one  counsel  and  one  assistant,  cost- 
ing $4,000.  (See  also  page  41.)  Further  adjustments  are  suggested  in  the  clerical 
and  stenographic  forces,  all  of  which  are  based  upon  an  analysis  of  the  volume 
of  business  transacted  by  the  sheriffs  of  New  York  and  Bronx  Counties  in  1914. 

It  should  be  noted  in  addition  that  the  abolition  of  the  participation  of  the 
sheriff's  of  New  York  and  Richmond  Counties  in  their  fees  (see  p.  24)  will 
save  the  City  more  than  $60,000  annually. 

8.     County  Court  and  Court  of  General  Sessions: 

Present  total  cost  of  personal  Present  number   of   employees 210 

service  in  the  four  county 
courts  and  the  court  of  gen- 
eral sessions    $688,570  00 

Possible      consolidation      out-  Number    of    employees    under    sug- 

lined  in  Table  16  shows  total  gested   consolidation    145 

cost  of  421,620  00 


Saving    $266,950  00  Reduction    65 

The  consolidation  of  the  county  courts  and  the  court  of  general  sessions 
with  the  supreme  court  has  already  been  suggested  to  the  constitutional  con- 
vention.i 

An  alternative  plan  is  suggested  in  this  report,  however,  and  provides  for 
the  consolidation  of  the  county  courts,  the  court  of  general  sessions  and  the 
city  court  into  a  new  city  court  having  criminal  and  civil  jurisdiction  through- 
out the  entire  city.  Neither  of  these  suggestions  can,  however,  be  carried  out 
without  constitutional  amendment.  Either  of  them  would  effect  material  econo- 
mies in  clerical  and  other  subordinate  positions  as  indicated  in  Table  16,  which 
provides  for  the  substitution  of  a  chief  clerk  and  thirty-eight  court  clerks,  costing 
$85,000,  for  fifty-four  court  clerks,  costing  $175,000.  A  further  economy  can 
be  eff'ected  by  reducing  the  number  of  court  attendants  from  an  average  of  nine 
for  each  of  the  eleven  parts  of  the  court  to  forty-eight  court  attendants  for  all 
parts,  and  a  personal  attendant  for  each  of  the  sixteen  judges,  a  total  of  sixty- 
four.  The  number  and  compensation  of  judges  in  the  several  courts  has  been 
left  unchanged. 

9.     Surrogate: 

Present  total  cost  for  personal  Present  number  of  employees 165 

service    in    the    four    surro- 
gates' courts    %37^.Z2)6  00 

Possible _     consolidation      out-  Number    of    employees    under    sug- 

lined    in    Table    17    shows    a  gested  consolidation   129 

total  cost  of 262.950  00 


Saving    ..      $115,386  00  Reduction    2,6 

'See   Report  of  Board  of  Directors  of   New  York   Countv  Lawvers'   Association,   Mav 
4,   1915.  p.  21.  -  -  - 


40 

A  single  surrogate's  court  with  live  parts  is  substituted  for  the  present  four 
surrogates'  courts,  and  five  surrogates  at  annual  salaries  of  $10,000  each  are 
provided  in  place  of  the  five  surrogates  now  receiving  a  total  of  $65,000.  Six 
law  assistants,  costing  $25,000  per  annum,  are  replaced  by  four  law  assistants 
to  cost  $15,000;  a  saving  of  $10,000.  Further  economies  are  efi'ected  by  reducing 
the  compensation  of  the  chief  clerks  in  New  York  and  Kings  Counties,  whose 
present  salaries  are  out  of  all  proportion  to  the  character  of  work  required.  In 
addition  to  slight  reductions  in  the  number  of  stenographers,  searchers  and  clerks, 
the  consolidation  makes  possible  a  combination  of  related  clerical  services,  the 
standardization  of  title  and  the  resulting  elimination  of  superfluous  positions, 
amounting  to  more  than  $10,000.  In  the  place  of  fifteen  court  attendants,  cost- 
ing $25,400,  six  court  attendants  are  provided,  one  for  each  of  the  five  suggested 
parts  of  the  surrogates'  court,  and  one  substitute,  costing,  $7,200. 

MERGER  WITH  MUNICIPAL  GOVERNMENT. 

So  far  consideration  has  been  devoted  to  the  mere  unification  of  similar 
county  departments,  the  heads  of  the  unified  departments  to  be  chosen  bv  popular 
election  where  their  respective  predecessors  were  so  chosen.  Such  consolidation 
of  like  county  departments  is  the  very  least  that  should  be  accomplished.  The 
most  effective  reorganization,  however,  would  not  be  achieved  by  anything  short 
of  a  merger  of  the  consolidated  county  departments,  so  far  as  practicable,  with  the 
municipal  government. 

Such  merger  would  require  at  the  outset  that  the  chief  executive  of  the  muni- 
cipal government  should  appoint  the  heads  of  the  unified  county  clerk's  oftice,  the 
register,  the  commissioner  of  records,  sheriff,  public  administrator,  and  surrogate. 

Such  a  merger  could  be  further  effected  by  the  following : 

1.  Combination  of  Offices  of  County  Clerk  and  City  Clerk;  Clerk  of  Courts: 

The  county  clerk  is  ex  officio  clerk  of  the  supreme  and  county  courts  in  his 
county.  The  employees  assigned  to  this  work  in  the  present  offices  constitute  a 
distinct  division.  They  might  be  organized  under  an  official  "  clerk  of  courts  " 
appointed  by  the  appellate  division.  This  segregation  of  function  in  the  county 
clerk's  office  would  allow  a  combination  of  the  work  of  the  city  and  county  clerks 
which  in  other  respects  is  similar.  The  new  official  might  be  called  the  "  city 
and  county  clerk,"  appointed  by  the  mayor.  Incidentally,  there  is  now  a  duplica- 
tion of  work  between  the  city  clerk  and  the  county  clerk  in  the  matter  of  issuing 
and  filing  marriage  licenses  and  sending  dupHcates  to  the  state  department  of 
health.     This  would  be  eliminated  by  the  suggested  combination. 

2.  Abolition  of  Office  of  Commissioner  of  Records: 

The  establishment  of  the  offices  of  commissioner  of  records  was  intended  to 
be  temporary  as  is  shown  by  the  statutes  creating  them.  The  county  clerks  and 
registers  have  both  received  appropriations  for  the  same  work,  and  so  far  as  such 
work  must  be  continued,  a  force  temporarily  allowed  to  the  county  clerk,  register 
or  surrogate  would  be  sufficient.  The  commissioner  of  records  for  the  sur- 
rogates' court,  New  York  County,  was  originally  created  by  an  Assembly  bill  in 
1911.  This  was  distinctly  a  partisan  measure  and  resulted  in  creating  an  un- 
necessary but  lucrative  position  for  an  organization  leader.  Similarly,  the  posi- 
tion of  commissioner  of  records  in  Kings  County  has  been  the  sport  of  partisan 


41 

politics.  Originally  created  by  a  republican  majority  to  be  appointed  by  rej)ublican 
county  judges,  this  official  was  legislated  out  of  office  in  1911  by  a  democratic 
majority  which  provided  for  the  appointment  of  his  successor  by  the  democratic 
county  register. 

3.  Abolition  of  Office  of  Public  Administrator: 

The  public  administrator  has  the  custody  of  money  and  other  personal 
property  and  should  therefore  be  subject  to  current  auditing  control  and  super- 
vision. The  present  inclusion  of  this  office  in  the  court  group  surrounds  it  with 
a  kind  of  mystery  which  is  not  conducive  to  efficient  administration.  In  "  up- 
state "  counties  where  there  is  no  public  administrator  the  county  treasurer  per- 
forms these  functions.  As  the  chamberlain  exercises  the  duties  of  county 
treasurer  for  the  counties  within  the  city  of  New  York,  those  of  the  public  ad- 
ministrator might  likewise  devolve  upon  him.^  Under  present  conditions,  more- 
over, the  chamberlain  is  the  ultimate  custodian  of  moneys  collected  by  the  public 
administrator  as  the  latter  is  compelled  to  turn  over  to  him  all  court  and  trust 
funds. 

4.  Combination  of  Office  of  Sheriff  with  Departments  of  Police  and  Correction 

and  City  Marshals: 

As  peace  officer  a  sheriff  is  unnecessary  in  the  city  of  New  York.  His  historic 
responsibilities  in  that  respect  are  imposed  upon  the  municipal  police  department. 
His  present  duties  with  respect  to  the  maintenance  of  county  jails  for  both 
civil  and  criminal  prisoners  should  be  transferred  to  the  department  of  correction, 
which  is  equipped  to  do  this  work. 

Bills  providing  for  a  reorganization  of  the  office  of  city  marshal  have  been 
introduced  in  the  legislature  at  recent  sessions.  It  has  therein  been  proposed 
to  substitute  a  head  marshal  and  assistants,  all  on  a  salaried  basis,  for  the  present 
promiscuous  force  of  fee  officers.  The  sheriff  executes  the  mandates  of  civil 
and  criminal  courts  of  record,  while  the  marshals  execute  mandates  of  inferior 
courts  of  civil  jurisdiction.  By  the  suggested  transfer  of  the  sheriff's  control  over 
criminal  prisoners  to  the  department  of  correction  the  way  would  be  clear  for 
a  combination  of  the  similar  offices  of  sheriff  and  marshal  under  one  official 
appointed  by  the  mayor,  who  would  execute  the  mandates  of  all  civil  courts  within 
the  city,  both  of  record  and  not  of  record. 

5.  Abolition  of  Counsel  for  County  Officials: 

At  present  the  county  clerk  of  New  York,  Bronx,  Kings  and  Queens  counties, 
the  register  of  Kings  county,  the  public  administrator  of  Kings  County,  and  the 
sheriff  in  all  counties  are  provided  with  special  counsel  for  the  rendering  of  legal 
service. 

No  sufficient  reason  appears  for  equipping  these  officers  with  special  counsel. 
The  city  law  department  should  be  able  to  serve  them  as  it  does  other  branches 
of  the  city  and  county  government. 

CONSTITUTIONAL    AMENDMENT    NECESSARY 

The  improvements  in  the  present  county  government  within  the  city  of 
New  York  which  can  be  effected  by  change  of  internal  administrative  methods 

^Or  upon  the  Department  of  Finance  in  case  of  the  merging  of  the  Chamberlain's  office 
with  that  of  Comptroller. 


42 

alone,  are  comparatively  few  and  of  no  great  importance.  The  prompt  installa- 
tion in  the  registers'  and  county  clerks'  offices  of  photographic  or  other  modern 
processes  of  copying  original  documents  would  affect  some  economy  ;i  again, 
the  completion  of  locality  indexes  in  those  offices  will  make  the  examination  of 
titles  a  source  of  revenue  to  the  city  and  of  saving  to  those  branches  of  the 
government  which  require  title  searches. 

]\luch  progress  can,  however,  be  made  by  action  of  the  legislature.  If  the 
legislature  will  give  the  board  of  estimate  and  apportionment  and  the  board 
of  aldermen  complete  authority  over  all  county  expenses,  including  the  power  to 
lix  all  county  salaries  and  to  create  or  abolish  county  positions  (other  than  those 
established  by  the  constitution),  a  very  considerable  saving  will  result. 

P'urthermore,  legislative  enactment  is  necessary  before  the  fees  now  received 
by  county  offices  can  be  increased  sufficiently  to  render  the  services  of  these 
offices  self-supporting.  If  the  sheriffs  of  New  York  and  Richmond  counties 
were  precluded  by  law  from  all  participation  in  the  fees  of  their  offices,  an 
increase  in  the  city's  revenue  of  over  $60,000  per  annum  would  result.  Addi- 
tional economies  in  the  sheriffs'  offices  could  be  effected  w^ere  laws  passed  abol- 
ishing the  county  jails  and  transferring  the  jurisdiction  of  all  civil  and  criminal 
prisoners  to  the  department  of  correction.  Simultaneously  with  such  legislative 
action,  the  functions  of  sheriff  as  peace  officer  in  New  York  City  should  be 
imposed  upon  the  police  department. 

A  change  in  the  laws  affecting  the  registration  of  land  titles,  abolition  of 
the  offices  of  commissioners  of  records,  consolidation  of  the  offices  of  commis- 
sioners of  jurors  and  abolition  of  the  offices  of  public  administrator,  are  all 
within  the  power  of  the  legislature.  Were  such  new  laws  enacted,  the  business 
now  ])erformed  by  these  officers  could  be  conducted  with  greater  dispatch  and 
economy. 

I^ven  these  amendments  to  law,  however,  do  not  strike  at  the  root  of  the 
present  evil.  The  greatest  and  most  serious  obstacle  in  the  path  of  progress  lies 
in  constitutional  inhibition  and  limitation.  No  fundamental  reform  can  be  ef- 
fected and  no  thorough  reorganization  can  be  made  unless  the  constitution  of  the 
state  is  changed. 

Even  if  a  legislature  should  grant  to  the  city  authorities  full  control  over 
county  expenses,  there  w^ould  be  no  guarantee  that  a  subsequent  legislature  would 
not  revoke  this  power.  It  is,  therefore,  necessary  for  the  proper  exercise  of 
local  government  that  the  constitution  be  amended  so  as  to  prohibit  the  fixation 
of  county  salaries  or  positions  by  statute,  devolving  all  powers  in  this  respect 
upon  the  local  municipal  authorities.  Furthermore,  unless  section  1  of  article 
10  of  the  constitution  is  so  amended  as  not  to  apply  to  counties  within  the  city 
of  New  York,  it  would  be  impossible  to  effect  any  substantial  change  in  the  offices 
of  sheriff,  county  clerk,  district  attorney  and  register ;  for,  as  the  constitu- 
tion now  reads,  the  incunil)cnts  of  those  offices  are  ])erpetuate(l  as  constitutional 
officers. 

Contingent  upon  such  a  change  in  the  constilulion  is  the  recommendation 
that  the  five  county  clerks'  offices  be  consolidated  into  one,  the  incumbent  tliereof 
to  be  apjKjinted  by  the  mayor,  as  well  as  the  alternative  suggestion  that  a  "  clerk 
of  courts  "  be  appointed  by  the  appellate  division  to  take  over  all  the  duties 


'The  register  of   New   York  County  now   has  under  a(hisement   the  adoption  of   some 
aich  process. 


43 

now  exercised  by  county  clerks  with  respect  to  court  matters,  and  the  subse- 
quent consoHdation,  as  to  the  remaining  functions,  of  county  clerks'  offices  with 
the  office  of  the  city  clerk. 

Also  contingent  upon  the  adoption  of  the  above  mentioned  constitutional 
amendment  is  the  recommendation  that  the  offices  of  district  attorney  in  the  five 
counties  be  combined  into  one  office,  the  head  thereof  to  be  elected  by  the  city  at 
large.  Similarly,  no  consolidation  of  the  registers'  offices  can  be  effected  witii- 
out  such  constitutional  amendment.  Nor  can  the  five  sheriffs'  offices  be  combined 
into  one,  the  head  thereof  to  be  appointed  by  the  mayor,  unless  the  continuation 
of  the  sheriff"  as  a  constitutional  officer  is  ended.  Such  combination  of  the 
sheriff's'  offices  is  in  turn  a  pre-requisite  to  an  eff'ective  uniting  of  certain  func- 
tions of  the  sheriff's  office  with  those  of  the  city  marshals. 

No  action  can  be  taken  by  the  city  of  New  York  or  the  legislature  of  the 
state  with  respect  to  the  consolidation  of  the  county  courts  and  the  court  of 
general  sessions  without  amending  section  14,  article  6  of  the  constitution, 
which  gives  these  courts  constitutional  sanction.  Nor  can  a  consolidation  of  the 
surrogates'  courts  be  eff'ected  as  herein  suggested  unless  section  15,  article  6 
of  the  constitution  is  so  amended  as  not  to  apply  to  the  counties  within  New  York 
City.  An  amendment  to  the  constitution  is  a  condition  precedent  to  the  consolida- 
tion of  the  five  counties  within  the  city  of  New  York  into  one  county.  Such  a 
consolidation  should  be  eff'ected  -^only  with  the  express  provision  that  it  would 
•not  operate  to  reduce  New  York  City's  representation  in  the  legislature. 

In  conclusion,  therefore,  although  there  is  imperative  need  for  immediate 
reorganization  of  the  county  governments  within  the  city  of  New  York,  com- 
paratively little  can  be  done  by  merely  internal  administrative  reform.  ^lore 
can  be  accomplished  in  this  direction  by  the  legislature,  but  even  the  legislature 
cannot  authorize  or  eff'ect  the  necessary  and  fundamental  reforms.  The  Consti- 
tutional Convention  is,  therefore,  the  one  agency  to  which  the  city  can  appeal 
for  relief  from  the  present  extravagant  and  inefficient  form  of  county  govern- 
ment which  has  been  saddled  upon  the  city  through  no  will  of  its  own  but  merely 
as  a  survival  from  mediaeval  times. 


TABLE  No.  1. 
COST  OF  COUNTY   GOVERNMENT,  NEW  YORK  COUNTY,  1914.  BASED  UPON  BUDGET  ALLOWANXEB,  REVENUE  BONDS.  AND  INCIDENTAL  EXPENDITURES. 


COST  OK  COUNTY  GOVERNMENT,  BRONX  COUNTV,  1914,  BA 


I       TABLE  No.  2. 
UPON  BUDGET  ALLOWANCES,  REVENUE  BONDS,  AND  INCIDENTAL  EXPENDITURES. 


Budget  Allowances. 

Revenue 
Bonds. 

Incidental 
Expenditures. 

Office,  Department  or  Burcou. 

Total. 

Personal  Service. 

Supplies. 

1 

Purchasie 

of 

Equipment. 

Contract  or 

General 
Plant 
Supplies. 

Contin- 
gencies. 

Fixed  Charges  and  Contributions. 

Salaries 

Wages 
Temporary 
Employees. 

Fees 
and  Com- 
missions. 

Chanljible 
Institu- 

Rent. 

Disburse- 
ments, 
Foes,  ic. 

Light.  Heat  .and 
Power 

County  Cleric 

$29,504  00 
48,5M00 
26,004  00 
24,070  00 
4,004  00 

29,004  00 
29,505  00 

25,620  00 

26,000  00 
21,900  00 
4,000  00 

29,000  00 
29,605  00 

I         $1  00 
i            1  00 

;      l.T.ill  00 
1  00 

1  00 

$1  00 
1  00 

1  00 

I.WOO 

1  00 

1  00 

$1  00 
1  00 
1  00 
200  00 
1  00 

1  00 

$1  00 
1  00 
1  00 

70  00 
1  00 

1  00 

$36,000  43 

43,200  00 

71,497  19 

519  OS 

2,061  48 

69,393  13 

Hwdito     '*""''' 

ProUttloa  of  Life  >nd  Propwtr: 

$134  93 

$25,520  00 

Ileilth,  8>nlUtlon  mod  Care  for  Dependent: 

Charitable  InititutioDs  Fixed  Charges 

14,2.W  00 

CourU: 

Supreme  Court,  l>t  Department 

i:(4  9.1 
21,004  00 
10,004  00 

lolooooo 

2.50  00 
750  00 
1,000  00 

21,000  00 
10,000  00 

1  00 
1  00 

1  00 
1  00 

1  00 
1  00 

1  00 
1  00 

14,326  13 
28,015  00 

19,100  00 

6,339  60 

County  Court 

Fec«  aoci  ExpenMi  ot  Juror. 

$10,000  001 
250  00 
760  00 
1,000  ooj 

witnoL.Fe«. 1 ! ! !  1 !  1 ! ! ! ! ! ! ! ! ! ! ' ! ! ! ' ! . !  ! ! ! ! ! 

Cenlril  Purchue,  Prinling  and  Publicity:. 

10,200  00 

$10,200  00 

2,000  00 

$1,017  75 

lO.II.SI)  OU 

MUcellaneoua: 

Clerk,  to  County  Cauvawcr.,  Rent,  Coutingencica  and 

4,417  76 

1500  00 

$220,099  93 
1,763  00 
167  00 
10,407  00 
2,077  00 
39.437  75 

$219,466  OO 

$500  00 

-$134  93 

$1,763  00 

$157  00 

$207  00 

$10,200  00 

1: 

$2,077  00 

1 





$25,520  00 

$1,917  75 

$12,000  00 

$314,691  10 

$273,941  68 

$3,414  22 

Budget  Alio. 
Revenue  Bon 
Light,  Heat  a 

SUMMARY. 

. .    $273,941  68 

nd  Power 

3  414 

22 

Total,  Bronx  County 

,.(..,  _,. 

00 

TABLE  No.  3. 
COST  OF  COUNT^  GOVERNMENT,  KINGS  COUNTY,  1914,  BASED  UPON  BUDGET  ALLOWANCES,  REVENUE  BONDS,  AND  INCIDENTAL  EXPENDITURES. 


Office,  Department  ( 


Regular 
Employees 


General 
Plant 


Fixed  Charges  and  Contributions. 


Advertising 

bounty  Court         Rent. 


Incidental  Expenditures. 


-ight.  Heat 


Pensions 
Employees. 


Fees  anff  Commissions . 


;  and  Re-binding  Mutilated  Records 
ig  and  Sorting  Records  and  Book 
n4  Co 


Commissioner  of  Records 

Commissioner  of  Jurors 

Public  Administrator 

Protection  of  Life  and  Propertj': 

Sheriff 

National  Guard  and  Naval  Militia. . 


Supreme  Court,  Second  Department 

Supreme  Court,  Second  Department,  Appellate  Division . 
Supreme  Court,  Appellate  Term,  Second  Department .  . 

Surrogate's  Court 

County  Court 


The  SuiJreine  Court  Library . 
Fees  and  Expenses  of  Jurors . 
Disbursements  and  Fees 


100,000  ( 
41.145  ( 
12,003  ( 


374,850  00 
71,375  81 
12,400  00 

109,730  00 


9,800  00 

110,000  00 

4,000  00 

10,000  00 


12,300  00 
108,686  00 
158,100  00 


:J:: 

sadlO 
npefati 


Total  Personal  Service. 

Total 

Total 

Total  Contingencies. . 

Total  Contract  or  Open  Order  Service .  . 

Total  Filed  Charges  and  Contributions. 

Grand  Total  Appropriations,  1914 


9,315  25 
28,527  00 
213,729  00 


450  00 
'36606 
'86606 


800  00 

i.mm 


$110,000  001 
4,000  00 
10,000  00 


$10,747  35       $2,454 


CXPLANATION  OF  SYMBOLS. 


Budget  Allowances 

Revenue  Bonds 

Light,  Heat  and  Power. . 
Pensions  to  Employees . . 


Total,  Kings  County. 


$1,860,550  31 

124,111  22 

10,747  35 

2,454  16 

$1,997,863  04 

TABLE  No.  4  .  ] 

COST  OF  COUNTY  GOVERNMENT,  QUEENS  COUNTY,   1914,   BASED  UPON  BUDGET  ALLOWANCES,  REVENUE  BONDS  AND   INCIDENTAL  EXPENDITURES. 


Budget  Allowances. 

Revenue 
Bonds. 

Incidental 
Expenditures. 

Office,  Department  or  Bureau. 

Total. 

Personal  Serv-icc. 

Supplies. 

Purchase 

of 

Equipment. 

Contract  or  Open  Order  Service. 

Coitingen- 

Salaries 

Regular 

Employees. 

Wages 

2mX::r. 

Fee!  and 
Commis- 
sions. 

Transporta- 

Communi- 

General 
Repairs. 

General 
Plant 
Service. 

Charitable 
Institu- 
tions. 

Insurance. 

Disburse- 
ments, 
Fees,  &o. 

Light,  Heat  and 
Power. 

$125,384  00 
38,352  00 
1,306  00 
12,255  00 

45,320  00 
5,110  00 

8,460  00 

78,626  04 
18,978  96 
25,445  00 
42,590  00 
2,470  00 
35,000  00 
4,000  00 
1,000  00 

$116,700  00 
33,100  00 
1,200  00 
11,150  00 

•42,200  00 
5,110  00 

$3,330  00 
300  00 

$1,793  00 
297  00 

$2,001  SO 
250  00 

$225  00 
900  00 

$200  00 
600  00 

$500  00 

$550  00 

$24  50 

1,505  00 

106  00 

19  00 

65  00 

$4,424  42 
2,880  34 

$1,400  00 

350  00 

616  00 
"830  00 

50  00 
1,500  00 

70  00 
500  00 

Protection  of  Ufe  and  Properti': 

Sheriff 

225  00 

900  00 

75  00 

$8,4G0  00 

Courts: 

Supreme  Court 

35,800  00 
18,978  96 
24,600  00 
41,800  00 
2,130  00 

42,651  04 

100  00 

Supreme  Court,  Second  Department,  Appellate  Division 

230  00 
140  00 

300  00 
300  00 

270  00 
200  00 

45  00 
25  00 
240  00 

2,325  00 

50  00 

75  00 

$100  00 

$35,000  001 
t4,000  00 
1,000  ooj 

10,200  00 

Witnesses'  Fees 

$10,547  36 

Central  Purchase,  Printing  and  Publicity  : 

4,000  00 
1,500  00 

4,000  00 

Miscellaneous: 

Clcrlis  to  County  Canvassers,  Contingennes,  Rente 
and  Premiums  on  Bonds  of  Offic.als 

500  00 

tl.OOO  00 

Charged  as  R 

1,409  11 

$381,425  00 
3,906  00 
2,911  50 
9,865  00 
3,129  50 
48,560  00 

$332,708  9G 

$4,605  00 

$44,051  04 

Total  Supplies 

$3,906  00 

$2,911  50 

Total  Contract  or  Open  Order  Sertlcc 

$2,675  00 

$1,840  00 

$500  00 

$4,850  00 

$3,129  50 

$8,460  00 

$100  00 

$40,000  00 

$449,797  00 

$22,138  87 

$10,547  36 

1 

EXPLANATION  OF  SYMBOLS. 

Care  of  Prisoners  (included)  Sheriff $3,800  00 

Food  Supplies  for  Prisoners  (included)  Sheriff  620  00 


Budget  AUowances 

Revenue  Bonds 

Light,  Heat  and  Power. . 


$449,797  00  t  Contingencies. 

22,138  87  Code  3041  was  increased  by  transfer  of  $1,800  from  Code  Disb. 

10,547  36  Fees  3631.    The  excess  expenditure  in  Contingencies  account 

amounting  to  $329.50  was  subsequently  adjusted  when  Revenue 

$482,483  23  Bonds  were  issued. 


Code  3631 $4,000  00 

Less  transfer  to  Code 
3641 1,800  00 


I 


TABLE  Xi).  S 
COST  OF  COUNTY  GOVERNMENT,  niCHlMOND  COUNTY,  l!kl4,  BASED  UPON  BUDGET  AU.OWANCES,  REVENUE  BONDS.  AXD  INCIDENTAI.   EXPENDUrURES. 


Budget  Allowances. 


Protection  of  Life  and  Propertf: 

National  Guard  and  Naval  Militia. 


rourts: 

Supreme  Court 

Supreme  Court — Second  Department,  Appellate  Division 

County  Court  and  Surrogate's  Court 

Fees  and  Expenses  of  Jurors 

Disburyeinents  and  Fees. 


'  Fees. 


llKht,  Heat  and  Power  (All  Offices). 


1  County  Canvassers,  Rent,  Contingencies,  and 


Total  Personal  Service. 

Total  Supplies 

Total  Purchase  or  I 
Total  Contract  or  ( 

Total  Contingencies 

Total  Filed  Charges  and  I 

Grand  Total  Appropriation,  1914. 


$23,035  00 
15,167  00 
4,300  00 


15,955  95 
3,284  38 
21,600  00 
10,000  00 
100  00 


2,425  00 


$107,960  33 
8,657  00 
1,545  00 
4,615  00 
2,410  00 
14,525  00 

$139,712  33 


Fees  and 
Regular        Temporary        Comi 
Employees.      Employees. 


$22,400  00 
12,650  00 
3,900  00 


Contract  or  Open  Order  Servii 


Plant 


$10  ( 
700  00 
250  00 


Disburse- 
Fees,  etc. 


$10,000  00) 

100  001 

1,0(K)  OOJ 


S2."i,123  39  $1,920  00 


EXPLANATION  OF  SYMBOLS. 

Care  of  Prisoners  (Included)  Sheriff 

Care  of  Prisoners  (Physicians)  Sheriff 

Food  and  Medical  Supplies— Prisoners  (Included)  Sheriff 

;  Household  Equipment,  $450.00,  and  Wearing  Apparel,  $300.00     . 


Budget  Allowances .... 

Revenue  Bonds 

Light.  Heat  and  Power. 


$139,712  33 
25,123  39 
1,926  00 


Total,  Richmond  County 


TABLE  No.  6. 
FEES  COLLECTED  AND  BUDGET  AND  REVENUE  BOND  ALLOWANCES  FOR  EACH  FEE-EARNING  COUNTY  OFFICE  FROM  1906  TO  1914,  INCLUSIVE. 

; 

Purpose,  Chnracter  of  Uevenuc. 

Yea 

1906. 

Year  1907. 

Y'ear  1908. 

Yea 

rl909. 

Ye 

r  1910. 

Year  1911. 

Y'e 

r 1912. 

Yes 

r  1913. 

iYea 

r 1914. 

Court.  D.-iwrtmenl  or  Oflk-e. 

Fees 
Collected. 

Appropriation 
mowed  by  Board 
of  Estimate  and 
Revenue  Bonds. 

Fees 
Collect,  d. 

.\pproi)nation 
Allowed  bv  Board 
of  Estimate  and 
Revenue  Bonds. 

Fees 
Collected. 

Appropriation 
Allowed  bv  Board 
of  Estimate  and 
Revenue  Bonds. 

Fees 
Collected. 

■Vllowed  by  Board 
of  Estimate  and 
Revenue  Bonds. 

Fees 
Collected. 

Appropriation 
Allowed  by  Board 
of  Estimate  and 
Revenue  Bonds. 

Fees 
Collected. 

Appropriation 
Allowed  by  Board 
of  Estimate  and 
Revenue  Bonds. 

Fees 
Collected. 

AltetB-o'ard 
of  Estimate  and 
Revenue  Bonds. 

Collected. 

AtelfZrd 
of  Estimate  and 
Revenue  Bonds. 

cISi 

Appropriation 
Allowed  by  Board 
of  Estimate  and 
Revenue  Bonds. 

New  York  County. 

County  Clerk 

Sundry  Fees 

$54,.396  63 

19,481  57 

228,231  11 

837  76 

11,496  63 
•,33,110  20 

8,636  45 

$124,005  00 

315,260  00 
255,120  00 
51,412  50 
24,408  00 
1'28,992  00 
171,550  00 

$51,931 

62 

$120,030  00 

346,673  34 
2.55,280  00 
48,387  50 
25,280  00 
130,656  00 
181,200  00 

$64,683  18 

15,914  82 
157,548  30 

$141,950  00 

345,440  00 
2.55,280  00 
60,370  00 
26,130  00 
136,192  00 
180,140  00 

$54,687  11 

32,387  18 
175,589  61 

$144,000  00 

371,860  00 
245,320  00 
54,300  00 
26,130  00 
137,924  .50 
180,120  00 

$70,767  69 

4,913  35 
173,156  79 

"l0',067  77 
51,980  30 
10,946  70 
12,665  42 

39,803  60 

3,.500  00 

165,670  90 

$1.55,700  00 

401,840  00 
257,257  IK) 
53,300  on 
26,280  on 
134,4.59  17 
179,830  (in 

86,580  on 
122,715  29 
225,713  00 

37,590  00 

$73,310  02 

167,114  08 

9,922  (iO 
47,5.59  92 
11, .582  nil 

S,(ill7   12 

40,989  63 

234  24 

1.54,476  50 

$143,(>00  00 

415,890  00 
329,100  00 
53,300  00 
26,330  (HI 
135,197  on 
179,.335  on 

iii2,nin  00 

131,493  50 
218,060  00 
37,840  00 

8.5,758  50 
96.674  00 

28,000  00 
34,200  00 
12,120  00 
1,200  00 
74,850  00 
23,970  00 

$76,215  20 

308  20 

166,250  69 

.35 

11, ran  24 

57,633  68 
13,n22  211 
14,681  119 

43,066  82 

431  90 

144,735  59 

$187,620  00 

462,365  56 
331,441  00 
53,300  00 
26,230  00 
154,005  .58 
172,835  00 

$74,100  64 

$188,125  Oil 

476,410  00 
327,968  00 
.53,420  00 
26,270  00 
156,949  00 
202,6.50  00 

102,042  25 
139,8-20  00 
245,8-20  00 
41,668  75 
11,984  50 
90,718  00 
105,636  00 

118,690  00 
.35,280  34 
12,120  0(1 
1,200  00 
49,318  00 
24,220  00 

i 
$69,882  |r2 

$193,865  00 

587,709  99 
307,763  40 
58,300  00 
■27,-200  00 
160,422  00 
■209,140  00 

146.503  75 
1.36,558  50 
222,074  00 
41,145  00 
12,652  04 
94,029  83 
110,036  00 

District  .\ttorney 

Forfeited  Recognizances,  Interest 
and  .Subpoena  Fees 

Jurors'  Fines 

^omm..ss,ons..  . 

I'vl^tCodeCivilPro,..:  Sec.' 3321) 

Forfeited  Recognisances,  etc..]. 

Sundry  Fees 

Jurors'  Fines 

negist«r 

Commissioner  of  .lurors 

Public  Administrator 

.Sheriff 

Surrogates 

Cimmberlain 

Kiiies  <  ouiii). 

r ly  Clerk 

198,951!  07 

153,285  92 
10  00 
12,317  83 
55,043  87 
12,970  70 
12,683  49 

44,588  26 

209  01 

133,833  72 

102,729  91 
40  00 
12,095  67 
63,220  -27 
11,595  96 
9,469  51 

42,466  ,56 

915  ,32 

128,585  119 

l'o',i36'43 
4,375  30 
4:5.52  36 

67,513  71 
!- 

5,588  U 
270  80 
1,596  41 

i 
11,906  (12 

■    '470'|0 
246  B2 

0.095  is 

s,7S9  (-5 
39,539  iv 

N 
,„„-J„ 

14,776 
38,105 
9;i92 

59 
ft 

14,272  38 
49,514  03 
9,844  80 
13,154  73 

32,996  94 

10,119  06 
43,935  31 
10,754  08 
18,906  50 

37,279  23 

3;839  48 

170,827  44 

26,472  63 
218,6l6'78 

108,700  (HI 
88,072  10 

217,029  83 
29,900  00 

28,906 

1,570 

190:482 

■  16,671 
1,935 

68 
DO 
47 

u 

00 

66 

120,,S0O  (Id 
95,200  00 

242,005  64 
31,000  00 

121,460  00 
81,640  00 

90,100  00 
104,000  00 
240,620  00 

31,500  00 

11 2,650 '66 
90,510  00 

93,120  00 
119,839  01 
■229,840  00 

.38,990  00 

94,808  75 
139,249  05 
220,010  00 

42,440  00 
3,920  50 

89,019  44 

99:848  00 

i-irr : 

iMUbsioner  of  J""'™ 

152,417  73 

II  Aammistraior 

6,675  75 
12,522  80 
2,624  60 
3,446  71 

66,034  60 

20,147  21 
1„89S  00 

121,400  00 
79,480  00 

11,151  60 
1,882  60 
3,622  03 

10,967  00 
2,083  20 
4,590  79 

"40000 
i46  .34 

99,780  00 
92,342  50 

11,666  32 
2,084  00 
4,675  97 

■14973 
1,869  91 

'1,720  10 

11,310  00 

92,020  00 
94,980  (10 

11,783  65 
2,401  80 
4,774  04 

10,991  64 
3,173  52 
4,724  95 

-    r  aite 

Fees  (Code  Civil  Proc..  Sec.  3321) 

Sundry  Fees 

Forfeited  Recognizances,  etc 

Jurors'  Fines 

Commissions 

QiM-eiis  <oimty. 

100  00 

25,000  00 
21,800  00 
7,800  00 
1,200  00 
52,490  00 
17,200  00 

29,198  55 
21,800  00 
9,200  00 
1,200  00 
57,400  00 
17,200  00 

28,932  07 
32,600  00 
11,050  00 
1,200  00 
61,480  82 
17,200  00 

28,250  00 
57,979  96 
12,400  00 
1,200  00 
00,200  00 
17,850  00 

33,882  6(1 
.38,200  00 

12,450  on 
1,200  on 

24,783  33 
12,350  00 
4,400  00 
23,495  00 
18,650  00 

47,881  00 
34,650  00 
12,120  00 
1,200  00 
84,119  66 
23,970  00 

18,775  00 
13,550  00 
4,300  00 
32,658  55 
21,526  48 

130,476  63 
42,552  00 
12,-255  00 
1,306  00 
46,220  00 
30,870  on 

435  15 

17  .56 
2,710  90 

25  05 

2.50  28 

164  40 
3,560  68 

583  38 
3,4.38  17 

676  00 

Fees 

Fees  (Code  Civil  Proc,  Sec.  3321 ) 

430  40 
9  00 

994  04 

1,689  46 
11.145  26 

1,431  97 
12,209  51 
'     I.SHIS 

1,410  12 
12,(il2  IX) 

Richmond  Coiiiily. 

4,250  00 
7,500  00 
4,4(K)  00 
20,036  00 
14,300  00 

9,750  00 
10,900  00 

4,400  00 
21,045  00 
14,800  00 

9,750  00 
10,900  00 
4,400  00 
24,354  00 
15,800  00 

15,250  00 
12,950  00 
4,400  00 
23,545  00 
18,650  00 

19,950  00 
13,016  (« 
4,400  00 
28,881  12 
19,012  50 

25,882  0(1 
16,045  00 
4,300  00 
29,840  00 
21,625  00 

■23,035  00 
28,956  98 
4,300  00 
32,304  00 

21,600  no 

29,904  00 
27,347  50 

Forfeited  Recognizances,  etc,  . , 

i„„,,i,i^„ .,-  „(  Jurors 

110  00 

636 

JX) 

57  00 

4  00 

Ciuiiu  c.mri  nml  Surrogote's  Court 

689  90 
101  73 

Fees  (Code  Civil  Proc,  Sec.  3321) 

Fees 

Sund,y  Fees    

Sundrs'  Fees 



219  37 

161  10 

233  59 

323  71 

Bronx  County. 

56,351  .50 
29,504  00 
3,850  00 

Budget 

.Ulowances 

Fees.                 and 

Revenue 

Bonds. 

Ucgi^t.-r.                                           

I'l;^ 

.33,354  00 
26,004  00 
48,585  00 

F«-s 

74,589  00 
21,004  00 
2,060  00 

°Co'mty'"'t5S,479  37         »I8Z,I00  00 

"""'"'"'■■ 

23,064  on 
48,504  00 
27,801  00 

R.B.  110,704  98 

District  Atl^in.cv 

$■292,804  98 

[       76,305  00 

24,076  00 

1         4,004  00 

1,061  48 

Public  Administrator 

558  33 

Cbamberlain 

.    Fees  (Code Civil  Proc,  Sec. 3321) 

1         5,065  48 

GRAND  TOT.\L     . . 

»fi23,610  97 

$1,891,304  43 
$1,687,222  50 
R.B.204,081  93 

$554,446 

ro 

$1,997,046  03 
$1,864,844  ,50 
R.B.132,20153 

$518,347  34 

$2,022,548  89 
$1,908,226  00 
R.B. 114,322  89 

$.577,667  53 

$2,086,240  97 
$2,012,177  00 
R.B.74,053  97 

$.577.1.30  04 

$2,138,761  41 

$548,647  33 

$2,213,988  26 

$563,865  83 

$2,.37 1,743  57 
$2,298,202  75 
R.B.  73..540  82 

$609,183  20 

$2,508,001  81 
$2,444,801  25 
R.B.  63,200  59 

$603,420  12 

$■2,974,0.80  10 

$2,666,376  15 
R.B.196,998  97 
R.B.I  10.704  98 

$2,022,617  00 
R.B. 116,144  41 

$2,140,311  00 
R.B.  73,677  26 

Total  Revenue  Bonds  Authorize 

i 

■{ 

N.  v..  Kings.  Queens  and  Richmond. 
Bron.x  County. 

•  Sheriffs  !ecs.  New  York 

County,  includes  in  each  year  only  c 

ty's  share  oft 

otal  fees  coUocted. 

^ 

"^ 

fil^MMAKY  OF  FEES  COLLECTED  BY  SI 

TABLE  No.  7. 

EHIFFS  OF  NEW  YOEK  COUNTY  .IAN.  I,  1906,  TO  DEC    31,  1914  (INCLUSIVE),  DISPOSITION   0 
■10  DEC.  31,  1914  (INCLUSrVE), 

r  SAME,  SHOWINC;   AMOUNTS  PAID  TO  EACH 

INCUMBENT  FROM  JAN.   1,   1900, 

Total  Fees 
Collected. 

Reimbursements  Retained 
by  aty. 

Total 
Collections. 

Fees  to 

Sheriffs  Holding  Office  1906-1915. 

Fees  to 

Sheriffs  Prior  to  1906. 

Estate  of 
E.  J.  H. 

(1894-1807). 

Total 

Amount 

Paid  Sheriffs 

by  Years. 

Amounts  to  City 
General  Fund. 

"ST 

Prisoners. 

Care  of 

U.S. 
Prisoners. 

Nicholas 
J.  Hayes 
(1906-1907). 

Thom 

F.Fol 

(1908-1! 

John 

S.  Sliea 

(1910-1911). 

Julius 
Harhurger 
(1912-1913). 

M.S. 
Grifenhagen 
(1914-1915). 

M.  L. 

Erlanger 

(1901-1905). 

\V.  J. 

O'Brien 

(1902-1003). 

W.  F. 

Grell 

(1900-1901). 

Fees  and 
Transporta- 
tion 1910-11- 
12-13-1914. 

Transporta- 
tion 1906- 
07-08-09. 

190G' 

$01,238  24 
71,714  35 
91,288  30 
80,697  17 
98,450  24 
88,449  28 
106,369  98 
103,011  92 
109,439  06 

$1,360  68 
2,251  13 
3.440  23 
3,456  06 
2,346  98 
3,062  86 
3,906  08 
3,152  10 
2,916  74 

$62,598  92 
73,965  48 
94,728  53 
84,153  23 
100,905  02 
91,784  44 
110,818  56 
106,540  72 
112,432  10 

$25,722  14 

34,168  69 

9,179  86 

509  35 

334  23 

154  50 

33  81 

89  41 

1  92 

11 

1,21J   47 
l,16f  34 
'27J  00 
194:57 

$3,281  00 
1,380  74 
166  95 
12  SO 
52  56 
43  73 
2  50 

$485  58 
307  69 
.56  33 

$29,488  72 

45',214  60 
40,217  92 
48,924  72 
44,224  62 
53,184  88 
51,605  85 
46,041  82 

$31,749  62 
36,864  73 
46,073  80 
40,479  25 
61,643  03 
47,659  92 
67,633  68 
66,043  87 
67,390  28 

$1,360  68 
2,251  13 
3:440  23 
3,456  06 

1907' 

$2  60 

1908' 

1909* 

$34,278 '76 

42,810  82 

13,084  00 

4,625  13 

770  37 

$44  87 

$107  80 
272  30 
.542  50 
385  70 
76  30 

i9nt.. :.:.::::::::::::::::::: 

I9]2t 

$38,898  23 
46,360  06 
9,277  00 

19I3t 

158  25 

To  Nov.  30,  1914t 

$35,797  96 

Distribution  of  Nov.  1914  Fees,  . . 

$810,658  54 
10,043  90 

$25,892  86 
436  48 

$1,384  CO 
11  50 

$837,936  00 
10,491  88 

$70,193  91 

$92,57 

17 

40 

27 

$95,569  02 
24  92 

29  97 

$94,535  29 
4,134  70 

■  S        99  25 

$35,797  96 
4,456  43 

4,892  95 

$4,939  98 

$1,007  85 

$2  50 

$44  87 

$394,662  55 
8,639  46 

5,022  44 

$423,428  08 
•      360  551 

'  5,469  44J 

$10,845  37 

Collections  and  Distribution,  Dec., 

Distributed 
in  1916 

GRAND  TOTAL 

$820,702  44 

$26,329  34 

$1,390  10 
TOTAL  .. 

$848,427  88 
$848,427  88 

$70,193  91 

$92,594 

84 

$95,623  91 

$98,769  24 

$45,147  34 

$4,939  98 

$1,007  85 

$2  50 

$44  87 

Amount  to 
Amount  to 

TOTAL, 

$408,324  44 

City  of  New 
Sheriffs 

$429,258  07 
York 

$10,845  37 
429,258  07 

$440,103  44 
408,324  44 

$848,427  88 

NOTES. 

Yciir  1906 

•During  the  Years  1906-1907-1908-1909  Finance  Department  posted  Itei 
Balance,  after  deducting  Sheriff's  share,  to  the  General  Fund, 

-1912-1913  and  1914,  Finance  Department  posted  items  of  Transportstioili  of  Prisoners,  Amounta  received  from  the  State  and 


i  period  from  January  1  to  November  30.    Each  i 


■Years  1910-1911 


Bcember  1  of  preceding  year  to  November  30  of  current  year, 
of  Transportation  of  Prisoi  lers,  Amounts  received  from  the  State,  direct  to  General  Fund,  entering  Sheriff's  Fees  only  to  Special  and  Trust  Accounts,  and  Transferring 


Accounts,  and  subsequently  transferred  these  sums  included  in  Balance  of  Account,  after  deducting 


I  share,  to  General  Fund  by  Journal  En' 


ved  from  U.  S.  Marshals  for  care  of  U.  S.  Pri 


Special  and  Trust 


TABLE   No.   7A. 
1915   BUDGET  APPROPRIATIONS  FOR   PERSONAL  SERVICE  IN   COUNTY  JAILS. 


Position. 


New  York  County: 

1   Deputy  Sheriff 

1  Warden* 

1 1   Keepers  at  $1,000 

6  Prison  Guards  at  $1,200 

2  Van  Drivers  at  $900 

1  Clerk.. 

1  Physician 

3  Cleaners  at  $900 

2  Cooks  at  $300 

2  Cooks  (assistant)  $240  and  $228 

1  Laundress 

2  Engineers  at  $4.50  per  diem  (200  days  and  365  days, 

respectively) 

Bronx  County: 

1  Warden* 

1  Head  Keeper 

1 1  Keepers  at  81,000 

2  Prison  Guards  at  $1,000 

1  Van  Driver 

3  Matrons,  $900,  $750  and  $600 

1   Matron  at  83.00  per  day  (50  days) 

1   Clerk  to  Jail 

1  Physician 

3  Cleaners  at  $600 

2  Cooks  at  $420 

1   P2k'vator  Operator 

Kings  County: 

1  Warden* 

1   Deputy  Warden 

8  Keepers  at  81,200 

3  Matrons  at  $1,000 

1  Bookkeeper 

2  Cleaners  at  8750 

2  Cooks  at  $300 

Queens  County: 

'  1  Warden* 

2  Keepers  at  $1,000 

1  Matron 

Richmond  County: 

1  Jailer 

4  Prison  Guards  at  83.00  per  day  (365  days) 

2  Matrons  at  $800 

1  Matron 

1  Finger  Print  Clerk 

1   Physician 

1  Cook 

1  Farm  Hand 

Total  for  all  Counties 


For 
Guarding 

of 
Prisoners. 

$2,500  00 
3,000  00 

11,000  00 
7,200  00 
1,800  00 

$25,500  00 

$2,000  00 

1,500  00 

11,000  00 

2,000  00 

900  00 

2,250  00 

150  00 

$19,800  00 

$3,000  00 
2,000  00 
9,600  00 
3,000  00 

$17,600  00 

81,200  00 

2,000  00 

600  00 

$3,800  00 

8900  00 

4,380  00 

1,600  00 

600  00 

$7,480  00 

$74,180  00 

Other 
Duties. 


$1,200  00 

1,000  00 

2,700  00 

600  00 

468  00 

264  00 

2,542  50 


$8,774  50 


81,200  00 

1,000  00 

1,800  00 

840  00 

720  00 


$5,560  00 


$1,500  00 

1,500  00 

600  00 


$3,600  00 


$1,200  00 
750  00 
500  00 
480  00 


$2,930  00 


$20,864  50 


Total 

for 

County. 


$34,274  50 


25.360  00 


21,200  00 


3,800  00 


10,410  00 


$95,044  50 


'Wardens  also  receive  maintenance. 


TABLE   No.   7A. 
1915   BUDGET  APPROPRIATIONS  FOR   PERSONAL  SERVICE  IN   COUNTY  JAILS. 


i'ositioii. 


New  York  County: 

1  Deputy  Sheriff 

1  Warden* 

1 1   Keepers  at  $1,000 

6  Prison  Guards  at  $1,200 

2  Van  Drivers  at  $900 

1  Clerk.. 

1  Physician 

3  Cleaners  at  $900 

2  Cooks  at  $300 

2  Cooks  (assistant)  $240  and  $228 

1  Laundress 

2  Engineers  at  $4.50  per  diem  (200  days  and  365  days, 

respectively) 

Bronx  County: 

1  Warden* 

1  Head  Keeper 

1 1   Keepers  at  $1,000 

2  Prison  Guards  at  $1,000 

1   Van  Driver 

3  Matrons,  $900,  $750  and  $600 

1   Matron  at  $3.00  per  day  (50  days) 

1   Clerk  to  Jail 

1  Physician 

3  Cleaners  at  $600 

2  Cooks  at  $420 

1   Elevator  Operator 

Kings  County: 

1  Warden* 

1   Deputy  Warden 

8  Keepers  at  vSl,200 

3  Matrons  at  $1,000 

1  Bookkeeper 

2  Cleaners  at  $750 

2  Cooks  at  $300 

Queens  County: 

~  1  Warden* 

2  Keepers  at  $1,000 

1  ]Matron 

Richmond  County: 

1  Jailer 

4  Prison  Guards  at  S3. 00  per  day  (365  days) 

2  Matrons  at  $800 

1   Matron 

1  Finger  Print  Clerk 

1   Physician 

1  Cook 

1  Farm  Hand 

Total  for  all  Counties 


I<or 
Guarding 

of 
Prisoners. 

$2,500  00 
3,000  00 

11,000  00 
7,200  00 
1,800  00 

$25,500  00 

$2,000  00 

1,500  00 

11,000  00 

2,000  00 

900  00 

2,250  00 

150  00 

$19,800  00 

$3,000  00 
2,000  00 
9,600  00 
3,000  00 

$17,600  00 

SI, 200  00 

2,000  00 

600  00 

$3,800  00 

S900  00 

4,380  00 

1,600  00 

600  00 

$7,480  00 

$74,180  00 

Other 
Duties. 

$1,200  00 

1,000  00 

2,700  00 

600  00 

468  00 

264  00 

2,542  50 

$8,774  50 

SI, 200  00 

1,000  00 

1,800  00 

840  00 

720  00 

$5,560  00 

$V,500  00 

1,500  00 

600  00 

$3,600  00 

$1,200  00 
750  00 
500  00 
480  00 

$2,930  00 

$20,864  50 

Total 

for 

County. 


$34,274  50 


25.360  00 


21,200  00 


3,800  00 


10,410  00 
$95,044  50 


'Wardens  also  receive  maintenance. 


TABLE  No.  8.                            1 
SUMMARY  SHOWING  EXISTING  CONDITIONS  AND  THE  PROPOSED  REORGANIZATION  OF  THE  vIaRIOUS  COUNTY  OFFICES  IN  THE  CITY  OF  NEW  YORK. 

ExUting  Conditions. 

Proposed  Reorganization. 

Economy. 

County. 

Number  of 
Incumbents. 

Total 
Incumbents. 

Total 

Grand 
To  &. 

Number  of 
Incumbents. 

Total 
Salaries. 

Number  of 
Incumbents. 

Salaries. 

County  Clerk 

New  York. 

Bronx 

Kings 

Richmond : 

114 
37 
62 
SI 
14 

308 

312 
429 
160 

21 
240 

$179,760  00 
66,580  00 
105,648  75 
121,442  00 
22,400  00 

$495,530  75 

189 

294 
377 
120 

04 
11 

143 

$291, .590  00 

6.58,525  00 
502,190  00 
152,820  00 

97,080  00 
20,200  00 

216,510  00 

nn 

IS 
52 
40 

10 
97 

County  Clerk 

County  Clerk 

TOTALS 

193 
39 
52 
17 
11 

448,700  00 
89,760  00 

128,755  00 
37,480  00 
21,000  00 

$204,240  75 

District  Attorney 

New  York. . 
Bron.-. 

Richmond. 

District  Attorney 

725,745  00 
602,590  00 
246,420  00 

130,770  00 
44  370  00 

454,018  21 

TOTALS 

194 
62 
173 

285,630  00 
96,050  00 
220,910  00 

07,220  00 

Register 

New  York. . 

Bronx 

Kings 

Register 

TOTALS. . 

65 
30 
65 

100,000  00 
46,420  00 
100,000  00 

100,400  00 

New  York.  . 
New  York. . 
lOngs 

Commissioner  of  Records,  Surrogates  . . 

TOTALS. . 

160 

(60) 
(27) 

246,420  00 

(78,858  75) 
(36,460  00) 

93,000  00 

*To  Commissioner  of  Records  from  Registers 

TOTALS 

(247) 

31 
10 
23 

4 

(361,738  75) 

53,330  00 
22,500  00 
38,940  00 
11,950  00 
4,050  00 

New  York. . 

£:;;;: 

Richmond. 

Commissioner  of  Jurors 

TOTALS 

12 
1 
6 
1 
fees)     1 

26,050  00 
4,000  00 

12,520  00 
1,200  00 

33,090  00 

New  York.  . 
Bronx 

Richmond.. 

Public  Administrator 

Public  Administrator 

TOTALS 

(50  per  cent. 
(Fees,I9I4. 

56 
45 
26 
22 

59,703  711 
150,994  50/ 
91,410  00 
86,050  00 
42,200  00 
23,660  00 

24,170  00 

Sheriff  and  County  Jail 

New  York. . 

Bronx 

Kings 

Richmond': 

Sheriff  and  County  Jail 

Sheriff  and  County  Jail 

23/,oOS  21 

TABLE  No. 

8— Continued. 

Existing  Conditions. 

Economy. 

Office. 

County. 

Number  of 
Incumbents. 

Total 
Incumbents. 

Total 
Salaries. 

^. 

Number  of 
Incumbents. 

Total 
Salaries. 

Number  of 
Incumbents. 

Salaries. 

(    uritv  Court  (General Seasions) 

New  York.  . 

Bronx 

Kings 

Richmond!: 

120 
14 
55 
15 

210 
165 

$390,800  00 
38,450  00 
196,195  00 
42,025  00 
21,100  00 

J688,r.70  00 

378,836  00 
S3,-66,U  96 

145 
129 

$421,620  00 
262,950  00 

05 
36 

TOTALS                                                    •   ■ 

88 
13 
50 
14 

206,150  00 
35,100  00 

108,386  00 
28,700  00 

$266,950  00 

^M,r,„.-,(e8' Court                                            

New  York. . 

Bronx 

Kings 

Queens 

Richmond.. 

lie's  Court                                              

TOTALS 

115,386  00 

TOTALS                                 

1921 

1,472 

$2,623,485  00 

449 

$1,143,164  96 

: 



Number  of 
Departments 

Number  of 
Incumbents 

Total 
Salaries. 

40 

"9 

1,921 
1,472 

$3,766,649  96 

Proposed 

2,623,485  00 

GRAND  TOTAL  ECONOMY 

31 

449 

$1,143,164  96 
or  30.35% 

••  This  number  would  be  reduced  to  8  by  the  recommended  stolition  of  the 
Commissioners  of  Records  and  Public  Administrators  (pp.  40  and  41)  and  the  pro- 
posed creation  of  a  "  Clerk  of  Courts  "  (p.  40)  and  it  is  further  recdmmcnded  that 


TABLE  No.  9. 

COUNTY  CLERK. 

EXISTING  CONDITIONS  JANUARY  1,  1915,  IN  THE  FIVE  COUNTIES  IN  NEW  Y'ORK  CITY  AND  PROPOSED  REORGANIZATION,  SHOWING  RESULTING  ECONOIIIES. 


Bronx  County. 


Incumbenta. 


Kings  County. 


I  County. 


Richmond  County. 


Total 
Amount  of 
Salaries. 


Proposed  Reorganization. 


Number  of  Incumbents. 


1  County  Clerk 

1  Deputy  County  Clerk 

1  Second  Deputy  County  Clerk. 

1  Third  Deputy  County  Clerk.  . 


Secretary  and  Confidential  Clerk. 


Equity  Clerk 

Certificate  Clerk 

Assistant  Certificate  Clerk. 

,  Comparing  Clerk 

Docket  Clerk 

.  Mechanics'  Lien  Clerk .... 


tIS.OOO  ( 
6,000  00 
4,000  00 
2,500  00 


3,000  1 
2,600  ( 
5,000  I 
3,500  I 


J  of  Common  Pleas  a 
Records  (s>  $2,500  each. 

2  General  Clerks  @  $2,400. 

3  General  Clerks  @  $2,100 . 
2  General  Clerks  @  $2,000 . , 

1  General  Clerk 

1  General  Clerk 

17  General  Clerks  ®  $1,500. 

1  General  Clerk 

9  General  Clerks  @  $1,200. 

4  General  Clerks®  $1,000. 
10  Clerks®  $300 


id  Superior  Court 


720  00 

5,000  00 
4,800  00 
6,300  00 
4,000  00 
1,800  00 
1,600  f 
25,500  ( 


1  County  Clerk 

1  Deputy  County  Clerk 

1  Assistant  Deputy  County  Clerk 

1  Chief  Clerk 

1  Secretary 

1  Cashier 

1  Counsel 

1  Notarial  Clerk 

1  Equity  and  Law  Clerk 

1  Certificate  Clerk.    . 

1  Comparing  Clerk 

3  Docket  Clerks  @  $1,500 

1  Mechanics'  Lien  and  Lis  Pendens  Clerk 
1  Searcher 

1  Confidential  Stenographer 


>  General  Clerks  @  $1,000. 


2|500  I 

sioooi 
2;oooi 


Assistant  Deputy  County  Clerk. 
Satisfaction  Clerk  (Chief) 


Law  Clerk 

Notarial  Clerk 

Bookkeeper 

Equity  Clerk  (in  charge) . 
Equity  Clerks  @  $2,000. . 


2  Comparers®  $1,500.. 


2  Document  Searchers  (m  $1 ,500 


1  Chief  Clerk  (Marriage  License). . 
4  Clerks  (Marriage  License)  @  $l,i 


$12,000  I 
5,000  I 
2,500  1 
2,000  1 


2,500  00 
2,250  00 
2,000  00 
2,000  00 


3,000  00 
2,000  00 


1  County  Clerk , 

1  Deputy  County  Clerk , 

1  Assistant  Deputy  County  Clerk  ; 

1  Expert  Clerk  (Chief) 


I  Private  Secretary 

1  Financial  Clerk 

1  Deputy  Financial  Clerk 

I  Counsel 

1  Notarial  Clerk . 
1  Bookkeeper.    , 

1  Naturalization  Clerk 

1  Assistant  Na.turalization  Clerk .  ,  .  . 
4  Comparers  @  $1,500 .  . 

2  Docket  Clerks  (B>  $1,500 

1  Searcher 

1  Searcher 

1  Stenographer 

1  Map  Draftsman 

I  Calendar  Clerk 

1  Chief  Tickler  Clerk 

0  Clerks  (Sundry)  &  $1,500 

1  Chief  Clerk  (Marriage  License). . . . 
1  Assistant  Clerk  (Marriage  License), 

4  Clerks  @  $1,200 

1  Clerk 

I  Chief  Recording  Clerk 


$8,000  00 
4,500  00 
3,000  00 
3,000  00 


2,500  00 
2.000  00 
3,000  fK) 


1,500  00 
1,200  00 
6,000  00 


9,000  00 
1,500  00 
1,200  00 
4,800  00 


County  Clerk 

Deputy  County  Clerk 
Special  Deputy  Clerk . 
Court  Clerk 


$5,000  00 
2,500  00 
1,500  00 


5  County  Clerks 

5  Deputy  County  Clerks .  . 

4  Assistant  Deputy  Clerks. 
1  Court  Clerk 

5  Chief  Clerks 

4  Secretaries 

1  Auditor 

3  Cashiers  and  Fin.  Clerk 

1  Deputy  Financial  Clerk.. 

4  Counsels 

2  Law  Clerks 

1  Assistant  Law  Clerk 

3  Notarial  Clerks 

2  Bookkeepers 

6  Equity  Clerks 

2  Certificate  Clerks 

1  Assistant  Certificate  Clei 

2  Naturalization  Clerks .  , 

8  Comparers 

1  Expert  of  Records. 

9  Docket  Clerks 

2  Mechanics'  Lien  Clerks., 

7  Searchers 

4  Stenographers 

1  Custodian 

1  Draftsman 

1  Telephone  Operator 

2  Clerks  Common  Pleas. .  . 


$50,000  00 
22,000  00 
12,500  00 
1,800  00 


8,000  00 
2,600  00 
7,000  00 
2,000  00 

14,500  00 
6,000  00 
2,500  00 
6,550  00 
3,500  00 

14,500  00 

4,000  00 
1,.500  00 
2,700  00 

12,000  00 
3,000  00 

15,000  00 

2,800  00 

12,200  00 

4,500  00 
1,200  00 
1,500  00 

720  00 

5,000  00 


County  Clerk 

Deputy  County  Clerks  @  $5,000 
Deputy  County  Clerks  @  $4,000 
Asat.  Dep.  County  Clerks  @  $3,000 

Asst  Deputy  County  Clerk 

Chief  Clerks  @  $2,500 

Chief  Clerk 

Chief  Clerk 

Secretary 

Auditor 

Cashier 

Asst.Cash'r  A  Fin.Clk,(S;,  $1,S(X) 

Counsel 

Assistant  Counsel ,  , 

Law  Clerk 

Notarial  Clerks 

Bookkeeper 

Equity  Clerk 

Asst.  Equity  Clerks  ®  $2,000  e» 

Certificate  Clerk 

Assistant  Certificate  Clerk 

Naturalization  Clerks 

Comparers®  $1,500  ea 


1  Docket  Clerk  m  charge. .  . 
4  Docket  Clerks  @  $1,500. 
1  Mechanics'  Lien  Clerk ... 


1  Searcher 

4  Searchers® $1,500 

4  Stenographers  @  $1,000 
1  Copying  Clerk 


1  Telephone  Operator 

2  Clerks  of  Common  Pleas,  i 


102  Clerks  at  saUries  stated 

(8  clerks  less,  those  doing  Regis- 
ters work  in  Queens.  See 
Table  11.) 


1 

TABLE  No.  9— Continued. 

New  York  County. 

Bronx  County. 

Kings  County. 

Queens  County. 

Richmond  County. 

Total  Number  Incumbents. 

Total 
Amount  of 
Salaries.. 

Proposed  Reorganization. 

Incumbents. 

Total 

Incumbents. 

,    , 

rotal 
iBries. 

Incumbents. 

Total 
Salaries. 

lncun,bents 

Total 
.■Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

$4,500  00 
7.200  00 

4.500  00 
1,200  00 
2,400  00 

.-i.fiOO  00 

3,(KK)  00 

.1.040  no 

,3,500  00 

2,.«K)  no 
•■i.ooo  00 

1,500  00 
7,000  00 
2,000  0(1 

3  Index  Clerks  (B.$l,. 500 

3  Custodians  (3  $1,200 

$4,500  no 

3,600  00 
1,000  00 

000  00 

8,640  00 

1,500  00 
3,000  00 

9,000  00 

7,958  75 

100  00 

$1,500  00 

1,800  00 
3,000  00 

1,200  00 
1,112  00 
2,000  00 

1,000  00 
1,600  00 
720  00 
900  00 
750  00 
480  00 

1„500  00 
32,400  00 

1  Clerk  (Messenger) 

$900  00 

1 

$5,912  (>n 
9,200  010 
10,980  00 
14,880  00 
1,650  00 

*78,S58  75 
100  00 

3  nookbinders,.,®  $1,200 

2  Assistant  Index  Clerks  @  $1,5(10. . 
1  Bookbinder 

■i 

,400  00 
,2(X)  00 

!,880  00 

■'  Bookbinders  ®  $1  200 

1  Hookbinder 

$3,000  00 

2,400  00 
2000  00 

:(  Custodians  @  tl  200 

4  Messengers  @  $720 

1  Bookbinder  @  $4  per  day  (278  days) 

2  Custodians  @  $1,000.. . 

1  Bank  Messci.Kcr 

2  Messenei-rs  ('  ?<!nn                   

1  Laborer                                      

1   Watthn,;Lh                                        

1  Watchl.Kn,  l<-  ^: 1 

1  Laborer  (.1  !<7Jii  .  s  „„,.  .      

1  Supervisor  of  Copying  Mutl.  Rrrords 
27  Copyist,,  (Si  $1,200 

2  Custodians  (a.  $1,000 

4  Messengers  @  $750 

7,500  00 

21  Laborers 

2  Watchmen 

248 

60 
Fees  and  Commissions ,  . . 

12  Laborers  @  $720 

Be-Indeilng  JIudKment  Dockets. 

I  Superintendent  of  Indc.xing-Derarding 

2  Assistant*  to  Chief  of  Old  Records  &  $1,500. 

2  Docket  Comparing  Clerks  @  $I,.500 

1  Docket  Clerk 

.;  t,000  00 

5  Copyists  (159  175  folios  @  5c.) 

114 

$170,760  00 

37 

$«  i,580  00 

62 

$105,548  75 

81 

$121,442  00 

14 

$22,400  00 

308 

$495,830  tIs 

189 

$291,590  00 

•The  sum  of  $78,858.75  and  (iO  employees  is  included  and  will  be  combined  in  the  reorgan 


■  the  Commiesii  mer  of  Records.    (See  Statement  "M"  IV.) 


RECAPITULATION. 


Number  of 
Incumbents. 

ToUl 
Salaries. 

Existing  Conditions 

.308 
189 

$495  8.30  75 

Proposed i 

291,590  00 

ECONOMY I 

\ 

119 

$204,240  75 

EXISTING  CONDITIONS  JANUARY 


TABLE  No.  10. 
DISTRICT  ATTORNEY— 1915. 
1915,  IN  THE  FIVE  COUNTIES  IN  NEW  YORK  CITY  AND  PROPOSED  REORGANIZATION,  SHOWING  RESULTING  ECONOMI 


New  York  County. 


3  County. 


Richmond  County. 


Incumbent6. 


Existmg  Conditions. 


Proposed  Eeorganbatic 


Incumlients. 

1  District  Attorney 

15  Asst.  Diet.  Atty.  @  t7,500 

12  Asst.  Dist.  Atty.  @  tS.OOO 

17  Asst.  Dist.  Atty.  @  $4,000 

14  Asst.  Dist.  Atty.  @  t3,000.  .  . . 

3  Asst.  Dist.  Atty.  @  t2,500 

11  A«st.  Dist.  Atty.  @  $2,000.  . .  . 
7  Asst.  Dist.  Atty.  @  $1,500.  . .  . 

1  Secretary 

1  Chief  Clerk 

2  Deputy  Chief  Clerks  @  $3,500. 
1  Auditor 

1  General  Clerk 

22  General  Clerks  @  $1,800 

6  General  Clerks  @  $1,500 

12  General  Clerks  @  $1,200 

2  Interpreters,  1  @  $1,500, 1  @  $I,00<) 
1  Draftsman 

1  Librarian 

2  Telephone  Operators  @  $720. 

1  Stenographer  (Chief) 

7  Stenographers  @  $1,800 

Hi  .sttnnjriphers  @  $1,500 

11  .■<tii,,,ciupheis  @  $1,200 

1  Chief  Process  Server 

13  Process  Servers  @  $1,500 

4  Process  Servers  @  $1,350 

35  Process  Servers  @  $1,200 

11  Process  Servers  @  $1,000 

235 


District  Attornev. . 


1  Dep.  , 
11  Dep 

3  Dep 

2  Dep 

3  Dep, 
S  Dep, 
7  Dep, 


Dist.  Atty 

Asst.  Dist.  Atty.  @  $4,000. 
Asst.  Dist.  Atty.  @  $3,500., 
Asst.  Dist.  Atty.  @  $3,000. 
Asst.  Dist.  Atty.  @  $2,.500. . 
Asst.  Dist.  Atty.  ®  $2,0(X). . 
Asst.  Dist.  Atty.  @  $1,600.. 


1  Secretary 

1  Chief  Clerk 

1  Dep.  Chief  Clerk 

1  Dep.  Chief  Clerk  and  Auditor 

1  Clerk 

20  Clerks  @  $2,000 

3  Clerks  @  $1,500 

3  Clerks®  $1,200 

1  Draftsman 

1  Librarian 

2  Telephone  Operators  @  $720. 

1  Stenographer 

1  Stenographer 

9  Stenographers  @  $1,500 

12  Stenographers  @  $1,200 

1  Chief  Process  Server 

13  Process  Servers  @  $1,500  . . .  . 

4  Process  Servers  ®  $1,350 

32  Process  Servere  @  $1,200 

100  Forward 


$15,000  00 

105,000  00 
10,000  00 
4,500  00 
44,000  00 
10,500  00 
0,000  00 
7, ,500  00 
10,000  00 
10,500  00 


5,000  00 
^3,500  00 


2,500  00 
40,000  00 
4,500  00 
3,C00  00 


1,000  00 

1,440  00 

2,500  00 
1,800  00 
13,500  00 
14,400  00 


2,000  00 
19,500  00 

6,400  00 
38,400  00 


1  District  Attorney. . 
5  .\sst.  District  Atty. 


3  Dep.  Asst.  Dist.  Atty.  @  $3,000. 
1  Dep.  Asst.  Dist.  Atty 


Secretary. .  , 
Chief  Clerk.. 
Auditor. . . . 
Bail  Clerk. . 


2  Clerks®  $1,500 

2  Clerks  @  $1,200 

1  Clerk  to  Grand  Jury . . . 
1  Warden  to  Grand  Jury . 
1  Interpreter 


Telephone  Operato 


1  Confidential  Stenographer 

2  Confidential  Stenographers@$l,500 
1  Stenographer  and  Typewriter 


2  Process  Servers  @.  $1,200. 


$10,000  00 
25,000  00 


9,000  I 
2,000  ( 


1,650  00 
1,000  00 


District  Attorney.. 


Asst.  District  Atty.  @  $6,000 . 

Asst.  District  Atty 

Asst.  District  Atty.  @  $4,600. 

Asst.  District  Atty 

Asst.  District  Atty.  @  $3,000, 


Dep. 


.  Dist.  Atty . 


Clerk 

Clerk 

Clerk 

Clerk 

Clerks  @  $1,350, . 


Steno.  to  Grand  Jury  @  $2,000.. 
Steno.  &  Private  Secy.  @  $1,500 . 
Steno.  and  Private  Secretary. . .  . 


Process  Servers  ®$1,C 


$10,000  ( 

7,500  ( 
24,000  ( 

6,500  ( 
13,500  ( 

4.000  ( 


1,500  00 
1,200  00 
2,700  00 


4,000  I 
6,000  I 
1,200  I 


1  Steno.  and  Indict.  Clerk. . . . 

1  Stenographer 

1  Stenographer  to  Grand  Jury 

4  Process  Servers  (§'  $1,000, , . 


1,800  00 
1,500  00 
1,000  00 


1  District  Attorney 

1  First  Asst.  Dist,  Atty,. 
1  Second  Asst.  Dist.  Atty 

1  Confidential  Clerk 

1  Clerk 

1  Coui^  Interpreter 


2  Steno.  to  Grand  Jury  ®  $2,000 , 


3,.50O  00 
2,000  00 


Process  Server . 


5  District  Attorneys 

15  Asst.  Dist.  Atty.  @  $7,500 

4  Asst.  Dist.  Atty.  @  $0,000 

1  .^sst,  Dist.  Attv 

7   A«=t    Dl.l    Altv   (SI  $5,000 

I  .',..:    In.i     \ii>    (..,$4,500 

1-  ,      ;       -      ("  $4,000 

1  -\    ■    !■:-    '.■       ("  S.'!,500 

Ill  -i->    l"-i,  ,\ii-    ("  S3,000 

3  A>»l,lj„l.AUj.(<<,  $2,500 

11  -Viist.  Dist.  Atty.  ®  $2,000 

7  Asst.  Dist.  Atty.  @  $1,500 

2  Secretaries 

5  Chief  Clerk 

1  Deputy  Chief  Clerk 

2  Dep.  Chief  Clerks  and  Auditors ,  , 

1  Bail  Clerk 

39  Clerks 

1  Clerk  to  Grand  Jurj- 

1  Warden  to  Grand  Jury 

2  Interpreters 

1  Draftsman , 

1  Librarian 

4  Telephone  Operators 

1  Doorkeeper 

24  Stenographers 

3  Confidential  Stenographers 

1  Stenographer  and  Typewriter 

5  Stenographers  to  Grand  Jury 

5  Stenographers  and  Private  Secy., 

1  Stenographer  and  Indictment  Clerk 

1  Chief  Process  Server 

63  Process  Servers 


$48,000  00 

112,500  00 
24,000  00 

5,500  00 
35,000  00 
18,000  00 
62,000  00 
14,000  00 
30,000  00 

7,500  00 
22,000  00 
10,500  OO 

5,800  00 

16,400  00 
3,500  00 
5,150  00 


2,760  00 
1,200  00 
33,700  00 
4,800  00 
1,200  00 
9,000  00 
7,200  00 
1,800  00 


TABLE  No.  10— Continued. 


New  York  County. 


Bureau  of  Special  Sessions 


1  Dep.  Asst.  District  Attorney. 
1  Dep.  Asst.  District  Attorney. 

1  Clerk 

3  Clerks  @  $2,000 

1  Stenographer 

2  Process  Servers  @  tl,500 

2  Process  Servers  @  $1,350 

8  Process  Servers  @  $1,200 

1  Office  Boy 


Temporary  Employees. 

3  Stenographers  to  Grand  Jury  @$li 


$900  00 
1,440  00 
2,400 


5,000  00 
3,500  00 
2,600  00 
6,000  00 
1,200  00 
3,000  00 
2,700  00 
9,000  00 
420  00 


Temporary  Employees. 

Stenographer  to  Grand  Jury  @  $10 

per  diem 

Interpreter,  40  days  @  $5 

Expert  Service 

Official  Stenographer,  City  Magis 
trate  Courts 

Private  Detective 


Messeng 


2  County  Detectives  @  $1,500. . 
2  County  Detectives  @  $1,350. . 

1  County  Detective 

5   County  Detectives  ®  $1,200. . 

2  County  Detectives©  $1,000. 


Temporary  Employees. 

Stenographer  and  Private  Secretary 
@  $1 ,500,  3  months 

Telephone  Operator  @  $720,  1  mo. 

E.vpert  Service 

Official  Stenographer,  City  Magis- 
tes  Court 


3,000  00 
2,700  00 
1,800  00 
6,000  00 
2,000  00 


Temporary  Employees. 


Interpreter,  80  days  @  $5 . 


Expert  Service 

Official  Stenographer,  Transcripts 


Richmond  County. 


Temporary  Employees. 

Interpreter,  20  days  @  $5. . 


21  County  Detectives 

Bureau  of  Special  Sessions 


1  Deputy  Asst.  District  Attorney . 
1  Deputy  Asst.  District  Attorney . 

1  Clerk 

3  Clerks  @  $2,000 

1  Stenographer 

2  Process  Servers  @  $1,500 

2  Process  Servers  @  $1,350 

8  Process  Servers  @  $1,200 

1  Office  Boy 


Temporary  Employees. 

4  Stenographers  to  Grand  Jury  ( 

1  Stenographer  and  Private  Secretary 

3  Interpreters 

1  Telephone  Operator 

Expert  Service 


Official  Stenographer  (City  Magii 


5,000  00 
3,500  00 
2,.500  00 


3,000  ( 
2,700  ( 
9,600  ( 


8.500  00 
375  00 
700  00 
60  00 


Proposed  Reorganization. 

Incumbents. 

5  Messengera  @  $900 

4  Office  Boys  @  $420 

1  Chief  County  Detective 

6  County  Detectives  @  $1,.500 

14  County  Detectives  @  $1,200 


1,800  00 
9,000  00 
16,800  OO 


RECAPITULATION. 


Number  of 
Incumbents. 

Total 
Salaries. 

312 
294 

$725,745  00 
658,525  00 

Economv 

18 

$67,220  00 

1                TABLE  No.  11. 

II                     REGISTER 

EXISTING  CONDITIONS 

.JANUARY   1.   1915,   IX  THE  THREE  COUNTIES    (N^  YORK,  BRONX  AND   KINGS).  AND  PROPOSED  REORGANIZATION  SJIOW 

NO  RESULTING  ECONOMIES. 

New  York  County. 

Bronx  County. 

Kings  County. 

Total 
Number  of 
Incumbents. 

Total 
Salaries. 

Proposed  Reorganijation. 

Total 
Salaries. 

Total 
Salaries. 

1 

j              Incumbents. 

Total 
Salaries. 

Incumbents. 

Embracing  Five  Counties  (See  Text). 

Salaries. 

1  Register 

$12,000  no 
.i.ooo  no 

1  Register 

1  Deputy  Register 

1  A.«st.  Deputy  Register 

$10,000  00 
4.000  00 
3,000  00 

J  Register 

Il  Deputy  Register 

1  Asst.  Deputy  liegi.'-ter 

$12,000  00 

5,000  no 

2.500  on 

3 

$34,000  no 

I4,oon  nn 
9,600  (in 

I    Rc-gislcr 

$12  000  00 

1  Deputy  RcRisler 

I  Asst.  Deputy  Register 

2  Deputy  Regi.,ter  ®  $.5.000 

2  Deputy  Register  (1  Queens)  ®  S3,.500    .  , 
1   Deputy  Register  (Richmond) 

10,000  00 
7,000  00 
2,500  00 

I  ifexpert  Clerk 

1  [thief  Clerk  of  Records 

3,.ino  00 

1 

3,500  00 

I   Law  Clerk  (Counsel)     

3,000  00 

1   Chief  Clerk 

3,400  00 

I  Chief  Clerk 

2,.50O  00 

3,500  00 

1,800  nn 

2 

1 
1 

5,900  001 

1  Chief  Clerk  (Expert)      

3,000  00 

1  Reeretary 

2,500  (M 

1  Seoretury 

2,000  00 

1  feeeretary 

1,.500  00 

3 

6,000  00 

1  Secretary 

2,000  00 

1  Chief  Block  Indexcr 

3,000  00 
1,500  00 

ij  Chief  Block  Index  Clerk 

I  Chief  Current  Index  Clerk 

T.'mHI  00 

2 
2 

5,500  001 
3,300  00/ 

1  Chief  Block  Index  Clerk 
1  Asst.  Block  Index  Clerk 

2,500  00 
1,800  00 

1  Asst.  Block  Indexer 

1  Chief  Examiner 

2,.5O0  00 

1  Examiner 

2,000  00 

1 

2 

4,500  00 

2  Examiners  @  $1,800     . 

3,600  00 

1  Cashier 

1  Cashier 

1  Bookkeeper 

1  Assistant  Bookkeeper 

2,500  00 
1,500  00 

i,(ao  00 

1.400  00 

i,2(K)  no 

1  Cashier   . 

1  Bookkeeper 

1  Stenographer 

2,500  00 
1,200  00 
1,200  00 

1  Asst.  Cashier 

1  Bookkeeper 

1  Executive  Clerk 

1  Stenographer 

1,3.50  00 

1,6.50  no 
i,(wn  (X) 

1,500  00 

2 
3 
2 
3 

5,000  00) 
2,850  00/ 
4,500  00 
3,050  00 
3,90n  on 

1  Cashier 

1  Asst.  Cashier 

1  Bookkeeper 

2  Stenographers  @  $1,200 

2,500  00 
1,500  00 
1,500  00 

7  Comparers  ®$1,. 500 

10,500  00 

7 

in,.50n  on 

8  Comparing  Clerks  @  $1„500 

12,000  00 

2  Searcher  and  Examiner  (»  S2,nOO. 

4,000  00 

2 

4,oon  nn 

2  Searchers  @  $1,800 

3,600  00 

1  Superintendent  of  Indexing 

2,.50fl  00 

I  Chief  Index  Clerk 

2,000  00 

2 

4,.it*l  01) 

1  Chief  Index  Clerk 

2,000  00 

1  Satisfaction  Clerk 

1  Asst.  Satisfaction  Clerk 

3,400  00 
2,400  00 

I  Satisfaction  Clerk 

I  Asst.  Satisfaction  Clerk  , 
I  Verification  Clerk... 

2,000  00 
1,.500  00 
1,500  00 

Satisfaction  Clerk 

1.650  00 

3 

7,050  onl 
3,900  001 
1,500  OOJ 

3  .Satisfaction  Clerks  @  $2,000 

6,000  00 

1  Chattel  Mortgage  Clerk 

3,000  00 

Chattel  Mortgage  Clerk 

Asst.  Chattel  Mortgage  Clerk, 

1,650  00 
1,350  00 

2 
1 

tfdT< 

2  Chattel  Mortgage  Clerks  @  $2,000    ,      .  . 

4.000  00 

2,100  00 
1,800  00 
1,800  00 
16,500  00 

1  Clerk  (Chief  of  Records) 

4  Clerks  @$1,.500 

1,800  00 
0,000  00 

5,000  00 

1,800  00 
4,950  00 
13,500  00 

2 
1 

4 
24 

5,000  00 
2,100  00 
5,400  00 
6,750  00 
36,000  00 

124  Clerks 

1  Chief  Record  Clerk 

1  Notary  Clerk 

1  Clerk 

Clerks  @  $1  650 

U  Clerks  Oil, WO 

Clerks®  $1,500 

166,050  00 

2  Clerks  @  »l,3liO 

2  Clerks®  $1,350 

2,720  00 
2,700  00 
3,780  00 
33,000  00 

25  Clerks®  $1,200 

30,000  00 

. 

16,200  00 

14 
3 

2,720  00 
I8,90n  00 

3,78(1  00 
84,000  00 

2,8.50  001 
20,400  00 
6,800  OOj 

2,400  00 
3,360  00 

1,500  00 
42,000  001 

65,500  oo) 

2.S  Clerks®  $1,200 

1  Custodian 

14  Custodians  fei)$  1,200 

2  Custodians  (ri)  $i)IKI 

1,500  00 
10,800  00 
1„S00  00 

1  Custodian 

3  Custodians®  $1,200 

1,350  00 
3,000  00 

Custodians  ®  $1,000.  .  . 

5  000  00 

17 

20  Custodians  ®  $1,200 

24,000  00 

1  Bookbinder 

1,200  00 

2,400  00 

3 

1  Messenger 

1  Bookbinder 

1  Telephone  Operator 

800  00 
1,200  00 

720  00 
107,500  00 

27,000  00 

600  00 
12,500  00 

35 
37 

900  00 
42,000  00 

26,000  00 

2 
35 

60 

8  Recording  Clerks  @  5  cents  per 
per  folio  (250,000  folios) 

per  folio  (540,000  folio.,) 

Folio  Copyists  ®  5  cents  per  folio 
(520,000  folios) 

5  Laborers  @  $720 

3,600  00 

Laborers  ®  $720 

6,480  00 
720  00 

14 

10,080  001 
720  00/ 

15  Laborer,  .nnd  Custodian  ®  $720  

10,800  00 

TABLE  No.  II— Continued. 


Nen-  York  County. 

Bronx  County. 

Kings  County. 

Total 
Number  of 
Incumbents. 

Total 
Salaries. 

Proposed  Reorganization. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbent*. 

Embracing  Five  Counties  (See  Text). 

Salaries. 

1  Chief  Clerk,Preserv.of  Pub.Records 

$2,100  00 
1,260  00 
4,800  00 
3,300  00 
1,000  00 
2,400  00 
3,600  00 

Preservation  of  Public  Records. 

12  Copyists  (3)  $1, .-,00 

SIS.OOO  00 

1 
1 

3 

1 

i  lliiiii 

8    S8888JS 

S 
3 

Preservation  of  Public  Records. 

This  sum  of  $36,460  and  27  employees 
is  included  and  ivill  be  combined  in  the 
reorganization   of   the   Commissioners   of 

Division   Supervision   of   Records   in   the 
County  Clerk's  office.     (See  Table  No.  12.) 

Reindeilng  Department. 

1  Special  Deputy  Register 

1  ..W,  Deputy  Register 

3  Clerks  (8  $1,100 

2  Draftsmen  @  »1,200 

Total,  $18,460. 

$5,000  00 
3.000  00 

Relndeilng  Department. 

(Chap.  082,  Laws  1910) 

1  Special  Deputy  Register 

1  Assistant  Deputy  Register 

5,000  00 
3,001)  00 

$5,000  00 
3,000  00 

1  Abstracter  in  Charge 

23  Abstractors  fe  $1,200 

I  Examiner  in  Charge 

1  Examiner 

1,650  00 
27,600  00 
1,6.W  00 
1,.500  00 
5,400  00 

23 

1,650  00 
27,600  00 
1,650  00 
l,.50O  00 
5,400  00 

1  Abstractor  in  Charge 

23  Abstractor  @  $1,200 

I  Examiner  in  Charge  . 

I   Examiner 

4  Examiners  ®  $1,360 

1,650  00 
27,600  00 
1,650  00 
1,500  00 

4  Examiners®  $1,350 

.9,400  00 

8  locators®  $1,200 

9,600  00 

il,(ifW  00 

.s     Locators  (&;  $1,200 

9,600  00 

4  Searchers®  $1,050 

14  Verifiers®  $1,000 

4,200  00 
14,000  00 

14 

4,200  00 
14.000  00 

4  Searchers  @  $1,050 

14  Verifiers  @  $1,000 

4,200  00 
14,000  00 

1  Chief  Surveyor 

2,100  00 
1,500  00 

2,100  00 
L.'iOO  00 

1  Chief  Surveyor 

1  Assistant  Surveyor .  . 

2,100  00 
1,500  00 

I  .Stenographer 

1,200  00 

1,200  00 

1  Stenographer        ,  . 

1,200  00 

2  Draftsmen  @  $1,350 

5  Draftsmen  @  $1,200 

2,700  00 
6,000  OO 

2.700  00 
6,000  00 

2  Draftsmen®  $1,350 
.1  Draftsmen®  $1,200,      , 

2,700  00 
6,000  00 

3,120  00 

0  Typevrriter  Copyists  ®  25  cent*  per 
index  page  (24,000  pages) 

Total,  $05,020. 

0,000  00 

O.IKIO  IX) 

H  Typewriter  Copyists  ®  25  cents  per  index 
page  (24,000  pages) 

6  Clerks  (Queens)  ®  $1,500 

2  Clerks  (Richmond)  @  $1,.500 

6,000  00 

9,000  00 
3,000  00 

194 

t285,630  00 

62 

$96,050  00 

173 

$220,910  00 

429 

S602,.W0  00 

377 

$502,190  00 

fJumber  of 
Incumbents. 

Total 
Salaries. 

Existing  Conditions 

Proposal 

429 

377 

$602,690  00 
502,190  OO 

.52 

TABLE  No.  12 
COMMISSIONER  OF  RECORDS. 
EXISTING  CONDITIONS,  JANUARY  1,  1915,  IN  THE  OFFICE  OF  COMMISSIONER  OF  RECORE 'S,  NEW  YORK  COUNTY;  COMMISSIONER  OF  RECORDS.  KINGS  COUNTY,  AND  COMMISSIONER  OF  RECORDS,  NEW  YORK  COUNTY  SURROGATES'  OFFICE;  AND  PROPOSED  REC- 

1 

ZATION  SHOWING  RE.SUL'HNG  ECONOMIES. 

Commissioner  of  Records 
New  York  County. 

Commissioner  of  Records 
Kings  County. 

Com  missioner  of  Records,  Surrogates' 
New  York  County. 

Total 
Number  of 
Incumbents 

Total 
Salaries. 

Proposed   Reorganization. 

1 

Existing  Conditio,is:  County  Clerk's  Office. 

Total 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Number  of  Incumbents. 

Salaries. 

Salaries. 

i                  Number  of  Incumbents. 

Salaries. 

$7,500  00 
4,000  00 
3,600  00 
21800  00 
2,700  00 
2,000  00 
2,000  00 

3,600  00 
1,650  00 

7,500  nn 

12,000  00 
6,480  00 

2,700  00 

3,600  00 
1,080  00 
4,320  00 

2,400  00 

1,800  00 
1,800  00 

4,800  00 

1,360  00 
10,080  00 

1  C 

$5,000  00 
4  000  00 
3,000  00 
3,000  00 

1,600  00 
1,800  00 
1,800  00 
3,200  00 

1,625  00 
6,000  00 
7,000  00 
1,325  00 
3,900  00 
2,450  00 
3,600  00 
4,400  00 

3,000  00 
1,500  00 

1,300  00 
1,100  00 

1,300  00 
2,000  00 
1,800  00 
1,500  00 
1,800  00 
2,000  00 

2,400  00 
1,050  00 
2,000  00 
6,300  00 
2,500  00 
2,100  00 
1,800  00 
1,800  00 
2,400  00 
1,300  00 
1,000  00 

I  Com 

missioner 

$5,000  00 
4,000  00 
3,600  00 

2,0(K)  00 

1,800  00 
12,000  00 

S,4(X)  00 

l„S0O  00 

2,100  00 
4.320  00 

1,200  00 

20 

27 

74  IncumhcDts, 
Total  Salaries  $98,530 

$17,.500  00 
12,000  00 
10,000  00 
6,800  00 
2,700  00 
4,000  00 
2,000  00 
1,600  00 
1,800  00 
6,400  00 
4,850  00 
1,800  00 
1,525  00 
25,500  00 
7,000  00 
1,325  OO 
3,900  00 
2,460  00 
24,000  00 
4,400  00 
6,480  00 
3,000  00 
1,500  00 
1,800  00 
4,000  00 
1,100  00 
3,600  00 
1,080  00 
4,320  00 
1,300  00 
2,000  00 

6,700  00 
3,600  00 
3,800  00 

9,600  00 
1,050  00 
3,350  00 
20,700  00 
2,500  00 
2,100  00 
1,800  00 
1,800  00 
2,400  00 
1,300  00 
2.200  00 

$5,000  00 
3,000  00 

2,500  00 
1,800  00 

3,600  00 

4,.5(10  00 

10,800  00 
9,000  00 
7,000  00 

1,000  00 
1,440  00 

5,400  00 
1,800  00 
4,500  00 

10,800  00 

1,000  00 
6,480  00 

2,100  00 
26,600  00 

6,000  00 
1,300  00 
900  00 
6,000  00 
32,400  00 

1  Asst.  Supt.  of  Indexing  and  Recording'  ... 

$3,.500  00 
2,500  00 
1,.500  00 
3,000  00 
1,.500  00 
3,000  00 
1,500  00 
7,000  00 
9,000  00 

32,400  00 
6,000  00 

$2,100  00 
i;260  00 
4,800  00 
3,.300  00 

1,000  00 

■2,400  00 
3,600  00 
18,000  00 

1  Deputy  Commissioner 

1  Deputy  Commissioner 

aty  Commissioner.... 
.rintendent 

1  Deputy  Commissioner  of  Records 

1  Chief  Clerk 

1  Assistant  to  Chief  Clerk 

2  General  Clerks  @$1,, soil 

3  General  Clerks  ®  $l,.50n 

9  General  Clerks  @  $1,200 
9  General  Clerks®  $1,001) 
7  General  Clerks®  $1,000   , 

1  Stenographer 

2  Stenographers  @  $720 

3  Indexers  of  Records  @  $1,800. . 

4  Chrks  @  $1,200' 

3  Clerk,  @  $1,100' 

1  1  Clerk  ®  $1,000' 

2  Draftsmen  @  $1,200' 

3  Bookbinder®  $1,200' 

12  Copyists  @$1,.500' 

1  Assistant  Superintendent 

1  Assistant  Superintendent 

1  Chief  of  Comparing  Division  . . 

1  Chief  of  Town  Records 

1  Clerk 

2  Assistants  to  Chief  @  $1  5b6» 

1  Supervisor  of  Copying  of  Mutilated  Records' 

I  Seer 

7  Index  Clerks  @  $1  000' 

27  Copyists  @  $1,200' 

6  Typewriter  Copyists  @  $1.000''  • 

5  Copyists®  $.05  per  folio' 

60 

1 

1  Chie 
8Cler 

f  Recording  Clerk   ... 

1  Clerk 

4  Clerks  @  $1,500 

5  CleriM  (Index  and  Record)  (w  $1,500. 

$78,858  75 

'27 

$36,460  00 

3  Clerks®  $1,300 

1 

' 

10  Clerlis  (Index  and  Record)  @  $1,200.  . 

3  Clerlis®  $1,200 

7  Cler 

iS  @  $1  ''00 

$246,420  00 
152,820  00 

6  Clerks  (Records)  @  $1,080 

1  ConI  idential  Stenographer , 

120  Employees,  Proposed  Reorganizations. . . 
40  Employees,            ECONOMY 

1  Stenographer  and  Clerk 

1  Stenographer 

$93,600  00 

2  Stenographers  and  Type.  @i  $1  3.50 

3  Stenograpliers  and  Type,  (gi  $1,200. . , 

1  Stenographer 

Proposed  ConsoUUatlon.  Based  on  Edsting  Conditions: 

6  Stenographers  and  Type.  ®  $720 

Present  Conditions,  Commissioner  of  Records. 

$246,420  00 
78,858  75 
36,460  00 

2  Custodians  (a  $1  (XX) 

1  Chief  Examiner  and  Indexer  of  Records 

1  Chief  lndc\  Division 

TOTAL  COST 

1  Assistant  Index  Division 

1  Chief  Clerk  of  Old  Records 

1  Super.  Copying  Mutil.  Records. 

2  Bookbinders  @  $1,200 

$361,738  75 
152,820  00 

1  Superintendent  of  Repair  Old  Records 

2  Bool  :binders(®$l, -200 

3  Asst.  Clerks  in  Charge  of  Old  Records  ®  $1,500. 

ECONOMY 

$208,918  75 

1  Supervisor  of  Re-Indexing 

1  Chief  of  Map  Division 

1  Assistant  Chief  of  Map  Division 

1  Chief  of  Locating  Division 

2  Draftsmen  (gl  $1  200 

1  Chief  Draftsman  (Map  Division) .  . 

160 

1  Mess 

17  Copyists  @  $1,500 

60 

247 
120 

Office  Register 

A  TOTAL  OF 

I  Tracer 

Under  Proposed  Reorganization  A  TOTAL  OF 

$S9,660  00 

$95,550  00 

j 

$46,420  00 

$231,630  00 

$100,000  00 

05 

$100,000  00 

30 

$46,420  00 

$246,420  00 

120 

$152,820  00 







NOTE— The  positio 


presented    to   illustrate   the 


New  York  County. 
Kings  County. 
Queens  County. 
Bronx  County. 


TABLE  No.  13. 

COjrMISSIONER    OF  .ItTRORS. 

EXISTING  CONDITIO?*,  JANUARY  1.  1013,  IN  THE  FIVE  COUNTIES  IN  NEW   VOHK  CITY  .\ND   I'liOPOSED  REOIiGANIZ.\T10N  SHOWING  RESULTING  ECONOMIES. 


New  York  County. 


1  Commission 

I  Assistant  Ci 


Secretary 

Clerk  and  Typewriter. 


3  Clerks  @$l,riiiO. 
0  Clerks®  $1,530. 


Clerks  fi;$I,4(}n,. 


2  Messengers®  $1,400. 


$8,000  ( 
3,000  ( 


4,050  00 
0,180  00 


Assistant  Commis 


Chief  Clerk 

Sciretary 

Clerk  and  Stenographei 


3  .Iiiry  Notife  Servers  fn  ?1,300  . 


1  Messenger  and  Telephone  Operator 


$0,000  00 
3,000  00 


2,000  1 
3,000  1 


Kings  Coun 


1  Commissioner 

1  Deputy  Commissioner . 


1  Clerk 

1  Secretary 

1  Stenographer 

1  Clerk  (Fine  and  Exempt), 


f.  Clerks  (H  $l,i 


.lury  Notice  Servers  @  $1,200.. 


$6,000  00 
3,500  00 


2,100  00 
2,500  00 
S-IO  00 


Clerk  (Exempt  and  Enroll) . 

Clerk 

.lury  Notice  Server 


.?3,000  00 
2,.50(>  00 


Richmond  County. 


1  Commissioner. 
I  Assistant  Comi 


Total 
Number  of 
Incumbents. 


0,180  00 
12,400  00 


Proposed  Reorganization. 


Nuniber  of  Incuin 


1  (^ommissfixner  of  Jurors 

2  Dep.  Conlmissioners  of  Jurors  (^  $3,0 
2  Dep.  Commissioners  of  Jurors  ^'  $2,0 
1  Dep.  Commissioner  of  Jurors 

I  Chief  Clerk 

1  Secretary. 

2  Stenogradhers  (a  S1,.5(K).  ,  , 
2  StenograiiherB  (n  SniH)  . 


20  Clerks  (ni  change) 


I  Jurv  Notice  Servers  (ti  81,200., 


0,000  00 
4,U00  00 


31      Total  Personal  Service . 


$22,.500  00     123 


76  $130,770  00      84 


RECAPITULATION. 


Number  of 
Incumbents, 

Salaries, 

Existing  Conditions 

Proposed                                                                           ,., 

70 

07  .OS ) 

Economy                                           

12 

$33,000  00 

TABLE  No.  14. 

PUBLIC  ADMINISTRATOR.. 

EXISTING  CONDITIONS  JANUARY  I,  1915,  IN  THE  FIVE  COUNTIES  IN  NEW  YORK  CITY,  AND  PROPOSED  REORGANIZATION  SHOWING  RESULTING  ECONOMIES. 


New  York  County. 

Bron.\  County. 

Kings  County. 

Queens  County. 

Richmond  County. 

Incumbenta. 

Total 
Salaries. 

Proposed  Reorganization. 

Licumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents! 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

$10,000  00 
5,000  00 

2,700  00 
1,900  00 
1,200  00 

1,200  00 
1,1, W  00 
730  00 

1.50  00 
1,400  00 
900  00 
300  00 

1  Public  Administrator. 

84,000  00 

1  Pul)lic  Administrator. 
1  Counsel 

$5,000  00 

3,000  00 
2,000  00 
1,200  00 

720  00 
600  00 

1  Pulilic  Administrator., 

.SI, 200  00 

1  Public  Administrator. . 

Fi.cs 

$20,200  00| 
5,000  Oo| 
3,000  00 
4,700  00 
3,100  00 
1,200  00 

1,200  00 

1,150  00 

1,470  00 

150  00 
600  00 

1,400  00 

900  00 

300  00 

1  Public  Administrator. 

1  Chief  Clerk  (Law) , .  . , 
1  Cashier   .      . 

1  Amt.  Public  AdminUtrator 

$7,500  00 

1  Clerk 

3,000  00 

1  Clerk 

1,900  00 

1  Stenographer., 

1  FUe  Clerk....  [ 

1  Clerk        

1,200  00 

1  Steno  ra  her 

1  Stenographer 

1  Stenographer 

1  Bookkeeper 

1  Steno    a  her 

1  Stenographer 

1  Stenographer  @  J5  per  day  (30  days) 

1,200  00 
COO  00 

12      Total  Personal  Service 

$26,650  00 

1 

$4,000  00 

G 

$12,520  00 

1 

$1,200  00 

1 

Fees 

21 

$44,370  00 

11 

$20,200  00 

RECAPITULATION. 

Number  of 
Incumbents. 

Total 
Salaries. 

Existing  Conditions 

21 
11 

$44  370  00 

20  200  00 

ECONOMY 

10 

$24  170  00 

New  York  County. 


TABLE  No.  15. 
SHERIFF. 
EXISTING  CONDITIONS,  JANfJARY  I,  1913,  IN  THE  FIVE  COUNTIES  IN  NEW  YORK  CITY  AND  PROPOSED  REORGANIZATI 

Richmond  County 


1  Sheriff 

(Sheriff's  fees,1914,$59,703.7 

1  Counsel 

1  Assistant  CouiKsfl 

1  Under  Slicriff 

14  Deputy  .Slieriffs  (a  $2,.'i00.. 

15  Asst.  Dep.  Sheriffs  (&■  $1,500, 

1  Chief  Clerk 

1  Entry  Clerk 

1  Asst.  Entry  Clerk 

1  Clerk  (Arrest) 

1  Clerk 

1  Clerk  (Jury) 

3  Clerks  @  $1,200 

1  Law  Clerk 

1  Cleaner 

2  Cleaners  @  $300 

1  Typewriter  Copyist 

1  Copyist  (30  days  @  $1.66^). 

1  Cashier 

1  Asst.  Cashier 

1  Auditor 

1  Asst.  Auditor 

1  Accountant 

1  Messenger 

1  Telephone  Operator. . . . 

1  Stenographer  (30  days  @  $3) 
1  Confidential  Stenographer . 

58    OFFICE  TOTAL 


riff  (Fees,  unknown). 


I  Counsel. 


2,500  00 
1,500  00 
1,500  00 
1,400  00 
2,000  00 
3,000  00 

1,600  00 


1  Under  Sheriff 

10  Deputy  Sheriffs  @  $2,500.. 
5  Asst.  Dep.  Sheriffs  @  $1,500 


2  Clerks  @$1,. 500.. 
2  Clerks®  $1,200.. 


5,000  00 
26,000  00 
7,500  00 


3,000  00 
2,400  00 


1  Under  Sheri  t. 
8  Deputy  Sh< 
8  Asst.  Dep.  I 


0,000  I 
17,()0fl  00 
8,000  00 


1  Under  Sheriff 

6  Deputy  Sheriffs  @  $1,500. 
0  Asst.  Dep.  Sheriffs  @  $900. 


Chief  Clerk. . 
Entry  Clerk . 


2,500  00 
9,000  00 
5,400  00 


,500  00 
,200  00 


1  Under  Sheriff 

1  Deputy  Sheriff 

4  Deputy  Sheriffs  as  Court 
tendants  @  $2.00  per  df 
(1,200  days) 


SIESULTING  ECONOMIES. 


Clerk— Index. 
Law  Clerk. . . . 


Stenographer  Typist . 


1,500  00 

90  00 

1,080  00 


Secretary 

Stenographer . 


2,000  00 
1,200  00 


Telephone  Operator 

Secretary 

Fees  and  Commissions .  . 
Confidential  Stenographei 


OFFICE  TOTAL. 


27      OFFICE  TOTAL. 


22      OFFICE  TOTAL. 


10      OFFICE  TOTAL. 


Total  Number  of  Incumbents. 


5  Counsels 

1  Assistant  Counsel 

5  Under  Sheriffs 

39  Deputy  Sheriffs... 


^8  Asst.  Deputy  Sheriffs 


4  Chief  Clerks.. 

1  Asst.  Clerk .  . 

2  Entry  Clerks. 
1  Asst.  Clerk... 


13  Clerks 

3  Law  Clerks. 


Typewriter  Copyists . 


1  Auditor 

1  Assistant  Auditor. 

2  Accountants 


3  Secretaries 

Fees  and 
5  Stenographe 


Sheriff's  Fees  (N.  Y.  County). 


Proposed  Cost . 
Economy.. 


9,000  00 
2,000  00 
3,700  00 


17,800  00 
5,100  00 


2,860  00 
1,350  00 
2,100  00 


5,000  00 

200  00 

4,570  00 


Proposed  Reorganization. 


Number  of  Incumbents. 


1  Under  S 

1  Under  Sheriff. 

1  Under  Sheriff. 


Chief  Clerk 

Asst.  Chief  Clerk.. 

Entry  Clerk 

Asst.  Entry  Clerk. 


13  Clerks  @  $1,200 

1  Clerk 

I  Law  Clerk  


2  Typewriter  Copyists. 


1  Secretary 

2  Stenographers  @  $1,200. . 


$12,000  00 
10,000  00 
4,000  00 
3,000  00 
2,500  00 


3,000  00 
2,000  00 
2,500  00 
1,500  00 


15,600  00 

900  00 

2,500  00 


1,350  00 
2,500  00 


3,000  00 
2,400  00 


Richmond  County,  Amount  unknown. 


TABLE  No.  15— Continued. 
SHERIFF— COUNTY  JAIL  DIVISION. 


New  York  County. 

Bronx  County. 

Kings  County. 

Queens  County. 

Richmond  County. 

Existing  Conditions. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Number  of  Incumbents. 

Total 
Salaries. 

Number  of  Incumbents. 

Total 
Salaries, 

1  Warden 

$3,000  00 

11.000  00 

600  00 

240  00 

228  00 

264  00 

2.700  00 

2,542  50 

1,000  00 

1,200  00 

2,500  00 
7,200  00 
1,800  00 

1  Warden 

$2,000  00 

11,000  00 

840  00 

1,800  00 

1,000  00 
1,200  00 

1,500  00 
2,000  00 
900  00 
900  00 
750  00 
720  00 

600  00 
150  00 

1  Warden 

$3,000  00 

9,600  00 

600  00 

1,500  00 
1,.500  00 

3,000  00 
2,000  00 

1  Warden 

$1,200  00 
2,000  00 

000  00 

1  Jailer 

1  Cook 

1  Physician 

4  Prison  Guards,  »:i.00  per  diem 

1  Matron 

2  Matrons  @  $800 .... 

$900  00 
500  00 

7.50  00 

4,380  00 

600  00 
1,600  00 

480  00 
1,200  00 

5  Wardens     .      . 

$10,100  00 

33,600  00 

2,540  00 

240  00 

228  00 

264  00 

6,000  00 

2.5*2  .50 

2,750  00 

3,900  00 

4,000  00 
13,580  00 
2,700  00 
5,100  00 
2,350  00 
1,200  00 
3,200  00 

750  00 

1  Warden        ' 

$3,000  00 
10,000  00 

10  Keepers  ® 
2  Cooks  @  d 
2  Asst.  Cooks 

2  Cooks  &  $300 

2  Cooks  @  $420. .  . ; 

2  Cooks  ©$300 

7  Cooks  

iCtcVok    ..:.::::.::: 

1  Laundress 

1  Laundress 

4  Cleaners  @ 
2  Engineers  ^ 
I  Physician 

$600 

2,400  00 

liooooo 

1,500  00 
1,650  00 
2,000  00 
17,600  00 

2  Engineers®  $4.50  per  diem. 
1  Physician  .                    .... 

1  Physician 

1  Bookkeeper.               

2  Engineers 

3  Physicians 

$4.50  per  diem 

1  Clerk  to  Jail 

2  Dep.SheriSs  and  Head  Keeper... 

2  Clerks-1  6 
1  Head  Keepa 

16  Prison  Guar 

3  Van  Driver 
3  Matrons  @ 

$900;  1®  $750 

6  PrUon  Guards®  $1,200 

iis-8(«Sl,200;8@$l,000 

6  Matrons 

3  Matrons 

$900       

2,700  00 

1  Matron 

1  Farm  Hand 

2  Finger  Print  Clerk  &  Dep.  Warden 

1  Matron  (50  days®  $3.00)... 

$34,274  50 

$25,360  00 

18    JAIL  TOT.VL 

$21,200  00 

$3,800  00 

$10,410  00 

$95,044  50 
48,910  00 

48      TOTAL. 

$48,910  00 

PROPOSED 

ECONOMY 

$46,134  50 

EECAPITULATION- 

EXISTING  CONDITIONS. 

New  York  County. 

Bronx  County. 

Kings  County. 

Queens  County. 

Richmond  County. 

All  Counties. 

Incumbents. 

Total 
Salaries. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Total 
Incumbents. 

Total 
Salaries. 

91 

$150,994  50 

56 

$91,410  00 

45 

$86,050  00 

26 

$42,200  00 

22 

$23,660  00 

240 

Sheriff's  Fees  New  York  County 

59  703  71 

SUMMARY  SHOWING  RESULTING  ECONOMIES. 


GRAND  TOTAL $237,508  21 


Number  of 
Incumbents. 

Total 
Salaries. 

I        145 

240 

9) 

4S 

~      143 

I? 

$299,270  00 
.59,703  71 

E.xisting  conditions  Sheriff's  Fees 

$.358  973  71 

$167,600  00 
48,910  00 

95  044  50 

Total  Existing  Conditions 

$454  018  21 

Proposed— Sheriff's  Office 

Economy 

EXISTING  CONDITIONS  JANUARY 


7  Judges  @  »17,50O 

1  Clerk 

12  Deputy  Clerks  @  $4,000 

2  Deputy  Clerks  @  »3.000 

1  Araiatant  Clerk 

9  Record  Clerks  @  $3,000 

6  Stenographers  @  $3,600 

2  Wardens,  Grand  Jury,  ©  $2,000. 

7  Clerks  to  Judges  @  $2,500 

5  Interpreters  @  $2,500 

68  Attendants  ®  $1,800 


5,000  00 
48,000  00 
6,000  00 


4,000  00 
27,000  00 


21,600  00 
4,000  00 
17,500  00 
12,500  00 
122,400  00 


1  County  Judge 

1  Secretary 

1  Special  Deputy  Clerk 


2  Aast.  Spec.  Dep.  Clerks  (B'  $2,500. 


4  Attendants  (Court)  t«  $1,500. 


Temporary  Employees. 

Compensation  of  visiting  Judges, 

25  days  @  $10  per  day 

Interpreter,  100  days  @  $5  per  day 


TABLE  No.  10. 
COUNTY  COURTS  (COUNTY  COURT  AND  SURROGATE'S  COURT  COMBINED  IN  RICHMOND). 
I,  IN  THE  FIVE  COUNTIES  IN   NEW  YORK  CITY,  SHOWING   ECONOMIES  WHICH  WOULD  RESULT  FROM  A  CONSOLIDATION  OF  CLERICAL  AND  OTHER  SUBORDINATE  POSITIONS. 


Total 
Number  of 
Incumbents. 


in 
it 


unty  Judges  @  $10,000 

iditional  compensation  of  County  Judge 
ifor  services  in  drawing  jurors  @  $2,500 

Chief  Clerk 

Deputy  Chief  Clerk 


Confidential  Clerks  @  $2,000. 

Clerk 

Cerk 

CBrks@$3,500 

CBrka@$3,200 

Cark 

Cerk 

Cerk 

Cerk 


Il  terpreter 
Ii  terpreter 

*  Court  Attendant. . 
t  Attendants  @  $2,0 
6  Olurt  Attendants  ^}  $1,8 


4  D  itectives  @i  $3,0(M 

1  T|iIephone  Operator 

Compensat'nofjudgesfromothercoun 

Stenographers'  Fees 

R^erees'  Fees 

Niltaries'  Fees 


I    Temporary  Employees. 

Interpreter  100  days  @  $5  per  day . 

Lffcorer,  600  days  @  $2.50  per  day. 

Tfttphone  Operator  @  60  c.  per 

lot  to  exceed  $1.50  per  day 


10,000  00 
7,500  00 
5,000  00 


8,000  ( 
4,000  ( 
3,800  ( 
14,000  ( 
6,400  ( 
3,000  ( 
2,700  ( 
2,100  ( 
1,800  ( 


3,500  00 
2,500  00 
3,.50O  00 


10,8 


12,000  00 
1,000  00 
1,000  00 
1,978  00 
2,000  00 
22  00 


County  Judge 

Additional  compensation  of  County  Judge 
for  services  in  drawing  jurors 


1  Confidential  Clei 


1  Chief  Court  Attendant 

3  Court  Attendants  (8;  $1,600. . . 
1  Court  Attendant 

1  Court  Crier 

2  County  Detectives  @  $2,000. 


$10,000  00 
2,500  00 


1,500  00 
1,800  00 
4.000  00 


County  Judge  and  Surrogate 

Additional  compensation  of  County  Judge 
for  services  in  drawing  jurors. . . . 

Clerk  of  Surrogate's  Court 

Clerk  in  Surrogate's  Office 


Confidential  Clerk. 


Court  Attendant . 


Sala 


$7,500  00 

2,500  00 
3,000  00 
1,800  00 


Temporary 
Employees. 

Temporarj' 
Employees. 

Temporary 
Employees. 

Temporary 
Employees, 


3,000  00 
15,.500  00 
01,900  00 
11,000  00 
11,800  00 
13,000  00 
3,800  00 
41,000  00 
6,400  00 
3,000  00 
2,700  00 
2,100  00 
1,800  00 
1,500  00 


5,300  00 
157,200  00 
13,800  00 

3,800  00 
20,000  00 


I  00 


Proposed  Reorganization. 


Number  of  Incumbents. 


14  Judged. 


1  Managing  Clerk  (office  ti.i 


10  Clerks  (office  force)  @  $2,000, 
10  Clerks  (office  force)  @  $1,500. 
5  ClerksKofRce  force)  @  $1,200. 


13  Stenographers  (Court  furcc) 

2  Stenographers  and  Typewriters  (office)  @  $1,500. 

1  Warden,  Cirand  Jury  (Court  force) 

ardeu,  Grand  Jury  (Court  force) 


6  Interpreters  (Court  force)  ®  $2,000. 


2,.500  00 
5,000  00 
36,000  00 


27,300  00 
3,000  00 
1,500  00 


120  Total  Personal  Service. 


210 


RECAPITULATION. 


Number  of 
Incumbents. 

Total 
Salaries. 

210 
145 

Proposed 

421  020  00 

Eco  omv 

65 

$266,950  00 

TABLE   No.  17. 

SURROGATE. 

EXISTING  CONDITIONS  JANUARY  1,  1915,  IN  THE  FIVE  COUNTIES  IN  NEW  YORK  CITY  AND  PROPOSED  REORGANIZATION  SHOWING  RESULTING  ECONOMIE 


New  York  County. 


Proposed  Reorganization 


Surrogates  @  $15,000 

let  Law  AssisUnt 

2nd  Law  Assistant 

3rd  Law  Assistant 

4th  Law  Assistant 

Chief  Clerk 

Dep.  Chief  Clerk 

.\sst.  Dept.  Chf.  Clk 

Clerk  of  Court 

Dep.  Clerk  of  Court 

Clerk  Additional  Part  Court 


2  Clerks  to  Surrogates  @  t3,C00 

1  Bookkeeper 

1  Stenographer 

1  Stenographer 

1  Stenographer 

1  Asat.  Stenographer 

1  Correspond.  Searcher 

I  Correspond.  Searcher 

1  Confid.  Stenographer,  to  th 

Surrogates 

1  Steno.  to  Surrogates 

I  Interpreter 

I  Supt.  of  Supplies 

1  Special  Searcher 

1  Probate  Clerk 

I  1st  Asst.  Probate  Clerk 

1  2nd  Asst.  Probate  Clerk 

1  3rd  Asst.  Probate  Clerk 

!  -Administration  Clerk 

1  Asst.  Administration  Cierk. 

I  2nd  Asst.  Administr.  Clerk . 

I  3rd  Asst.  Administr.  Clerk . 

1  Guardian  Clerk 

1  .\s8t.  Guardian  Clerk 

1  Guardian  Accounting  Clerk. 
1   Asst.  Guard.  Accounting  Clk. 

I  Accounting  Clerk 

1  Asst.  Accounting  Clerk. . .  . 
1  Certificate  Clerk 

1  Subpoena  Clerk 

1   Requisition  Clerk 

1  Record  Clerk 

5  Record  Clerks  @  $1,500.   . 
1  Supt.  of  Recording  Clerks . 

1  Chief  Examiner 

1  Asst.  Examiner 


$30,000  00 
6,000  00 
5,500  ( 
4,500  00 
4,000  00 
10,000  00 
5,500  00 
2,600  ( 


6,000  1 
1,800  00 
3,250  00 
2,750  00 


2,400  ( 
1,500  ( 
5,000  ( 
2,400  ( 
2,100  ( 
1,350  e 
3,000  ( 
2,100  ( 
1,800  ( 
1,500  ( 
2,100  ( 
1,800  C 


3,000  I 
2,000  1 
1,500  I 


7,500  00 
2,000  00 
1,500  00 
1,350  00 


^ 


1  Chf.  Clk.  &  Clk.  of  s.  c  . 

1  Clerk  &  StenO.  to  Chf.  Clerk 


Telephone  0  'emtar 


1  Chf.  Court  4 

4  Court  Offices®  $1,800. 

1  Court  Office  ■ 


1  Court  Stenographc 


Confid.  Stenographel 


Guardian  Clerk . 


1  Chf.  of  Recof is  *  Interpret*. 

1  Asst.  Chief  tf' Records 

1  Probate  Clerk 

1  Asst.  Probate  Clerk 

1  Administration  Clerk 

1  Asst.  Adminfs'ration  Clerk.. 


1  Guardian  Acrountine  Clerk, 


1  Accounting  p'erk 

1  Asst.  Accou*tinB  Clerk 
1  Certificate  ^  Financial  C 


Chief  Reconf  ing  Clerk 

Clerk .] 

Clerk 

Clerk I 


9,000  00 
l,.'i00  00 
900  00 


2,300  00 
7,200  00 
1,500  00 


Clerk  of  Court 

Clerk  &  Stenographe: 


3,500  00 
2,100  00 


1,350  00 
9,500  001 
4,200  00 


1,500  00 
1,000  00 
1,800  00 
7,500  00 
3,400  00 
3,150  001 
2,950  00 


1,500  ( 


5  Surrogates  @  $10,000 

1  Law  Assistant 

1  Law  Assistant 

2  Law  Assistants  @  $3,0(X) 

1  Chief  Clerk 

1  Chief  Clerk 

2  Chief  Clerks  @  $2,500  

2  Stenos.  and  Typewriters  @  $1,500 

1  Telephone  Operator 


5  Clerks  of  Court  @  $3,000 

6  Court  Stenographers  @  $2.5(X) 


2  Confid.  Stenographers  ®  $1,350. . 
2  Interpreters  @  $1,800 

1  Probate  Clerk 

2  Probate  Clerks  @  $3,000 

3  Probate  Clerks  @  $2,100 

1  Probate  Clerk 

1  Administration  Clerk 

1  Administration  Clerk 

1  Administration  Clerk 

3  Asst.  Administr.  Clerks  @  $1,500. 

1  Chief  Accounting  Clerk 

2  Guardian  Acc'ting  Clerks  @  $2,000 

2  Guardian  Clerks  @  $1,500 

3  Accountants  @  $2,100 

1  Cashier 

1  Bookkeeper 

1  Chief  Clerk  of   Records 

6  Clerks  @  $1,200 

1  Chief  of  Recording  Clerks 

3  Clerks  @  $1,500 


TABLE  No.  17— Continued. 


Kew  York  County. 

Bron.v  County. 

Kings  County. 

Queens  County. 

Existing  Conditions. 

Proposed  Reorganization. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Incumbents. 

Total 
Salaries. 

Total 
Salaries. 

Total 
Salaries. 

22  Recording  Clerks®  $1.200.. 
1  Calendar  Clk.&Supt.Copyi.«ts 

»26,400  00 

i,r>oo  00 

3,600  00 

1,800  00 
5,400  00 

io.m  00 

2  Recording  Clerks  ((/  $1.2(X),  . 

1  Attendant  and  Messenger.. 
1  Confidential  Attendant 

$2,400  00 

1,2(KI  00 
1,500  00 

10  Recording  Clerks®  $1,300.. 

1  Comparer 

1  Comparer 

1  Calendar  Clerk 

1  Copyists,  Type 

$13,000  00 
1,350  00 
1.200  00 
2,400  00 
1,200  00 

2.300  00 
1,200  00 

1,300  OoJ 
3,636  00 

1  Copyist ... 

$1,200  00 
1,800  00 
1,500  00 
3,000  00 

l,.50O  00 

600  00 
750  00 
750  00 

.34 

5 

$41,800  00 
1,350  00 
1,200  00 
3,900  00 
6,000  00 
1,800  00 
3,800  00 
3,000  00 
1,800  00 
7,800  00 
14.400  00 

4,750  00 
4,386  00 

40  Clerks  @  $1,200 

1  Calendar  Clerk  &  Supt.  Copyists. . 
5  Copyists  @  $1  200 

$48,000  00 

1,500  00 
6  000  00 

2  Copyists  @  $900 

3  Index  Clerks  @  $1,200 

1  Librarian 

3,600  00 
1  500  00 

1  IJbrarian  &  Chf.  Messenger. 

.•!  Messengers©  Jl.SOO 

0  Court  Attendants  @$1,S()0.. 

2  Asst.  Index  Clerks  fe  $1,500. 

I  Chief  Custodian 

6  Court  Attendants  (e  $1,200 

3  Custodians  @  $1,000 

1  Court  Attendant   (200  days 
@$,3) .    . 

1  Custodian...., 

3,000  00 

1  Custodian  (300  days®  $2.50) 
1  Watchman(300  days®  $2.50) 

4  Laborers  (303  days®  $3)... 

88 

$200,1.50  00 

13 

$35,100  00 

.50 

$10S,.386  00 

14 

$28,700  00 

165 

$.378,336  00 

129 

$262,950  00 

RECAPITULATION. 


Number  of 
Incumbents. 

Total 
Salaries. 

Existine  Conditions 

165 
129 

$378  336  00 

Proposed.; : :... 

262,950  00 

Economy 

.36 

$115,386  00 

1 


